154 INDEX. Investments, riG-58. Italian language. See Romance languages. •lames, J. II., the chemistry of commerce, .Japanese language, teaching, 123-125. Jones, E. D., domestic markets and trade, 17-20. I>anguages, foreign, 123-140. I.atane, .T. n., foreign relations of the ITnitcd States, 105-107. Latin-American Republics, history, 88-00. Law, commercial and maritime, 81-83 ; international, 80-81. Litman, Simon, domestic and foreign com- mercial policies, 70-74. Lough, J. E., business psychology and ethics, 35-37. MacElwee, R. S., port and terminal facili- ties, 49-52. Maritime law, 81-83. Marlfets, domestic, 17-20 ; foreign, 20-24. Mathematics, busines.s, 31-35. Jloney and credit, 52-55. Norwegian language, teaching, 132-136. Ogg, F. A., comparative political institu- tions and political history of foreign countries, 100-102. Paxson, P. L., political history of the United States, 98-100. I'eriodical literature, use in education for foreign trade service, 141-152. Polish language. See Slavic languages. Political history, foreign countries, 100— 102 ; United States, 98-100. Politics economic background, 83-86. Porter, C. R., money and credit, banking, banking organizations and practice, 52- 55. Ports and terminal facilities, 49-52. Products, commercial, 7-9. Psychology and ethics, business, 35-37. Putnam, (i. E., comparative finance and taxation, 59-60. Railway traffic and rates, 52. Riigel, Robert, Insurance courses in the preparation for foreign trade work, (W-{{5. liivas, Damaso, tropical resources and hygiene, 27-31. Uomanre languages, teaching, 127-132. Uoorbach, O. B., economic geography of foreign countriis, 15-17. liowe, L. S., study of fiscal and customs legislation, 0.'5-70. Russian l.inguages. See Slavic languages. Salesmanship, 11-13. Scandinavian language, teaching, 132-13C. SecriSt, Ilornre, statistics as applied to imsiness, 41-44. Serbian language. See Slavic languages. Shepherd, W. R., history of the Latin- American republics, 88-00. Sioussat, St. G. L., historj' of Eiuropc since . 1850 as a study preparafry for foreign service, 86-88. Slavic languages, teaching, 136-138. Smith, .1. R.. industrial and commercial geography, 4—6. Social legislation, 77-80. South America, tropical resources, 27-31. Spanish language. See Romance languages. Statistics, applied to business, 41—44. Stock and produce exchange, 56-58. Swanson, A. E., study of business admin- istration and organization, 37-39. Swiggett, G. L., introduction, iii. Tariff, 44-47. Taussig, F. W., foreign trade and tarifTs, 44-47. Taxation and comparative finance. 59-60. Terminal facilities, 49-52. Trade, domestic, 17-20. Trade (foreign), 20-24; accouniiug ap- plied, 39-41 ; tariffs, 44-47 ; preparation, 37-39; shipping and transportation, 47-49. Transportation and shipping, relation to foreign trade, 47-49. Treat, P. J., Far liist and Australia, 95-98. Treaties and foreign policy, United States, 109-114. Turkish languages, teaching, 138-139. United States, diplomacy, treaties, and foreign policy, 109-114; diplomatic history, 102-105 ; economic history, 13-15 ; foreign relations, 105-107; political history, 98-100. Usher, A. P., the economic background of modern world politics, 8.3-86. Van Tuyl, G. IT., business arithmetic, 6-7. W'assani, C. W., commercial products, 7-9. Wiener, Ix'o, teaching of the Slavic lan- guages, 130-138. Wildman, ,T. R., accounting applied to for- eign trade, 39-41. Williams, E. T., teaching of Chinese and Japanese languages, 123-125. Williams, ITattie P., Immigration and citi- zenship; social legislation, 77-80. Wil.son, G. W., international law, 80-81. Yohannan. .\brahani. importance of Turk- ish and Armenian languages for foreign service, 138-140. o DEPARTMENT OF THE INTERIOR BUREAU OF EDUCATION BULLETIN. 1921, No. 28 EDUCATIONAL SURVEY OF WHEELING, WEST VIRGINIA A REPORT OF A SURVEY OF THE PUBLIC SCHOOLS OF THE INDEPENDENT SCHOOL DISTRICT OF WHEEL- ING. WEST VIRGINIA. MADE AT THE REQUEST OF THE BOARD OF SCHOOL COMMISSIONERS. UNDER THE DIRECTION OF THE UNITED STATES COMMISSIONER OF EDUCATION WASHINGTON GOVERNMENT PRINTING OFFICE 1921 ADDITIONAL COPIES OF THIS PUBLICATION MAY BE PROCURED FROM THE ST.-PERINTENDENT OF DOCUMENTS GO%-ERNMENT PRINTING OFFICE WASHINGTON, D. C. AT 10 CENTS PER COPY CONTENTS. Page. Letter of T)r. P. P. Claxton to the president of the WTieeling board of education. 5 Members of the siirvey commission 6 Introduction 7 I. Organization and administration of the school system .9 II. The legislative program 12 III. Finances and accounting 20 IV. School Iniildings and grounds 30 V. The building program 37 VI. The high schools 42 VII. The elementary schools 44 VIII. Physical education, health super\ision, and health teaching 46 IX. Home economics 48 X. Manual training and vocational education 49 XI. Art education 51 XII. Tangible results of the survey 53 3 I LETTER OF DR. P. P. CLAXTON TO THE PRESIDEiNT OF THE WHEELING BOARD OF EDUCATION. Hon. Paul O. Reymanx, President^ Board oj Education, Wheeling, TT. Va. My De.\ii Me. Reymann: In accordance with the arrangement entered into with the Wheeling Board of Education, I have caused a careful study to be made of the public school system of your city, and have received preliminary reports from the members of the survey commission designated to do the field work. As requested by you, I have had prepared a brief digest, or sum- mary of the principal conclusions and recommendations, in order that thefee may be distributed in printed form to the members of your board and to others interested. Accompanying this summary, I am sending also partial reports, or sections of the report, which present a portion of the supporting evi- dence and the argument for certain of the recommendations. I am making an effort to get as much as possible of the report into your hands in time for appropriate action in the emergency caused by the early termination of the recess taken by the West Virginia State Legislature. I believe you have in the material presented herewith sufficient data to enable you to formulate your petition to the legislature. The remainder of the report I hope to place in your hands within the next two or three weeks. Permit me to thank you and, through you, all the members of the board and the teacMng staff for the hearty cooperation which all concerned have manifested toward the work of the survey, and to express the hope that the final result will be found in improved edu- cational opportunities for the children and youth, as well as the maturer citizens of Wheeling, and increased utilization of these opportunities by all. Very truly, yours, P. P. Claxton, Commissioner. Washington, March 10, 1921. MEMBERS OF THE SURVEY COMMISSION. The members of the commission appointed by the Commissioner of Education to make the survey of the public schools of Wheel- ing, and to report to him their findings and recommendations, are as follows: From the Bureau of Education. Dr. William T. Bawden, assistant to the rommiasiouer, dire<:;tor of the survey. Mrs. Henrietta W. Calvin, specialist in home economics. Miss Nina C. Vandewalker, specialist in kindergarten and primary education. Miss Florence C. Fox, specialist in educational systems. ilrs. Alice Barrows Fernandez, specialist in industrial and economic relations in education. Miss Julia B. Tappan, assistant in school hygiene. From Outside the Bureau of Education. Dr. J. Franklin Bobbitt, professor of educational administration, University of Chicago, Chicago, 111. Mr. Ralph Bowman, specialist in school finance and accounting, United States Bureau of Efficiency, Washington, D. C. Dr. Willard S. Small, director of educational research and development, Interde- partmenUl Social Hygiene Board, Washington, D. C. Dr. Chester A. Buckner, professor of secondary education. University of Pittsburgh, Pittsburgh, Pa. Dr. Thomas Alexander, professor of elemenUry education, Peabody College for Teachers, Na8h\'ille, Tenn. Dr. Fletcher B. Dresslar, specialist in school arcliitecture, building?, and grounds, Peabody College for Teachers, Nash-ville, Tenn. Mr. Walter H. Klar, director art department, University of Pittsburgli. Pittsburgh, Pa. Mr. LjTiton F. Garrett, principal of the Training School, State Normal School, San Marcos, Tex. INTRODUCTION. On December 17, 1920, the president of the board of school com- missioners inquired concerning the possibility of having a survey of the public schools made under the direction of the United States Commissioner of Education. The conditions named were met by the board at a special meeting held on December 30, and an appro- priation of $5,000 was made to cover the necessary expenses of the survey. The members of the survey commission, as indicated on the preceding page, were appointed by the Commissioner of Educa- tion, and the field work began on Monday, Januaiy 17. The field work was completed on March 10; most of the work was done during February. The aggregate number of days devoted to field work was approximately 200. On Thursday evening, March 10, the director of the survey made a report of the conclusions and recommendations at a special meeting of the board of school commissioners, and a digest of the report was given to the press for release on the morning of the 12th. On Friday evening the report was made jDublic at a meeting of representatives of the board, various civic organizations, and the press through the distribution of a printed pamphlet of 53 pages. THE SURVEY BUDGET. The principal items of expenditure in connection with the survey may be summarized as follows : Transportation and subsistence of members of the commission $1, 796. 91 Honoraria of members of the commission not connected mth the United States Bureau of Education 1, 850. 00 Materials used in educational tests 47. 09 Clerical assistance 399. 92 Printing preliminary report 348. 00 Supplies, telephone, telegraph 80. 52 Total, to April 5, 1921 4, 522. 44 7 EDUCATIONAL SURVEY OF WHEELING, WEST VIRGINIA. ORGANIZATION AND ADMINISTRATION OF THE SCHOOL SYSTEM. INTRODUCTORY. The independent school district of Wheeling was established by act of the Virginia Legislature, in Richmond, February 23, 1849. It was then, and has since been maintained, entirely independent of all other school corporations, general school legislation, and even of the municipal corporation of Wheeling — notwithstanding, at present, more than two-thirds of the area of Wheeling lies outside the independent school district. Originally the board of school commissioners consisted of five members. Subsequent legislation to all intents and purposes divided the independent school district into seven relatively autonomous subdistricts, and provided for the present board of 21 members. In certain important respects this board functions as seven relatively independent local boards, and exercises executive control over such technical matters as appointment of teachers, administration of the school buildings, and the like- A good type of personnel appears to have been attracted to the office ; and the sub- districts have acquired a tradition of selecting high-minded men for their school commissioners. Certainly the present board is of this type. Some of the board's methods and actions must be criticized ; but the errors to be pointed out are errors of judgment and not of character or effort. Minutes of the board show that the superintendent of schools is not consulted nor asked to nomina,te teachers; until recently the principals were not consulted on appointments; nothing more clearly shows the primitive character of educational administration in Wheeling. LACK OF COMMUNITY INTEREST AND SUPPORT A SERIOUS HANDICAP. The community generally has l)een indifferent toward public school matters; active public cooperation and moral support have been largely lacking. Inactive members of the community who have made no effort to promote good schools have scarcely earned a right to criticize. MANY COMMENDABLE FEATURES IN SPITE OF UNFAVORABLE CONDITIONS. In spite of unfavorable conditions, including lack of vigorous community support, unwieldy size of board, inefficient scheme of organization, and the like, numerous commendable features have been introduced by the board. Some of these are: (1) Medical inspection or health service. (2) Numerous special supervisors and special teachers. (3) Free textbooks. (4) Development of the public library. 65670°— 21 2 9 10 KDUt'ATIONAL SUEVKY OF WHKHLING, W. VA. (5) Recent lan?e increases in salaries. (6) Recent expansion of the budjjet. (7) Settintr standard f|ualifications for high-school teachers. (8) An unusually extensive series of courses for vocational, industrial, commercial, and home-making training. (9) Recent attempts to extend the benefits of physical training. (10) The tendency to defray the expenses of members of the supervisory corps in attendance at ))rofe8sional meetings. (11) Provision of visiting days for teachers. (12) A not ungenerous sick-leave allowance. (13) Provision of a "coach" teacher for each building (although the plan is not administered effectively). (14) An unusually good system of providing substitute teachers (incomplete, but excellent so far as it goes). (1-5) Numerous sets of supplementary readers, and a system for circulating them (in serious need of att;^ntion. but a highly commendable start). (16) A teachers' pension system. (17) Evening schools. (18) Americanization classes. DIFFICULTIES OF ADMINISTRATION THROUGH COMMITTEES. The board has an unusually large number of standing committees — ten — each of which performs important functions properly belonging to the board itself. Four of these committees are each as large as the entire school board of New York City; and the smaller committees are each the size of the entire school board in Albany or Troy. Adding these 10 functional boards to the seven local or subdistrict boards, and the composite board in which they all belong, one may realize something of the complexity of the organization and the possibilities for scattering responsibility. For example, the committee on buildings and grounds acts chiefly as indi^•idual8, ordering repairs, painting, etc., without consultation, and without preWous action by the board. The committee meets, confirms the acts of indi^^dual members, and then requests confirmation by the board. From the way in which reports are presented, the board can have no real knowledge of what is done: confirmation is practically in- variaV)le, and without 'debate. In A-iew of the amount of work to be done, members of the committee can not give the amount of time necessary to know all the details and needs of all the buildings. Each member knows many things about ••his " building, it is true, but there is nothing approaching that specialized understanding of buildings, grounds, and equipment in relation to education that is needed for the efficient and economical administration of a modern school system. Further, they themselves sit among the judges of their own acts. Evidence of a certain degree of irresponsibility is found in the use of business prac- tices universally condemned, and generally forbidden by law; such as entering into contractual business relations with individual meml)ers of the board, and executive action by individual V)oard members prior to directing action b> the board. The results of this system of lay admini.'^tration may be seen in the actual l)uilding situation in WTieeling. Even old buildings can be made pleasant, light, airy, sani- tary, and reasonably safe: but this has not been done. There is little e^^dence of careful planning, standardized procedure, settled policies, a forward-looking build- ing program. The board's task is not to do the work, but to qrt it done; first, by directing, and then by iaspecting, so as to V)e sure the work is efficient and economical. The committee on buildings and grounds is active and conscientious, and appears to give an unusually large amount of time and attention to executive labors. It is not a question of honesty, or integrity, but of incorrect organization and procedure for securing results. SCHOOL ORGAXIZATTON AND ADMINISTRATION. 11 IMPOSSIBLE FOR LAYMEN EFFECTIVELY TO EXAMINE AND SELECT TEACHERS. The activities of the committee on teachers and schools afford other examples of the difficulties involved in the attempt to perform expert executixe functions through committees or indi\idual members of the board. Without professional training and extended experience, it is not possible to judge efficiently the relative merits of can- didates for principalship and teaching positions. In actual practice, the scheme has worked badly, omitting entirely any provision for rating the efficiency of principals and teachers, and means for eliminating the inefficient; another serious omission is that of a rule requiring consultation with superintendent and principals in choosing teachers. No provision has been made for recognizing superior merit or professional advancement by increases in salary or otherwise. The alternative plan is to leave executive labors to professional executiv^es. The superintendent alone, in consultation ^vith principals and super^dsors, can know how many teachers are needed, and the special abilities needed for each type of position. This plan places responsibihty where it belongs; relieves the board of unnecessary labors; gives the superintendent authority over his teachers, which he can not have so long as they owe their positions to others; permits the board to hold the superin- tendent responsible for results— a thing impossible now. WORK OF OTHER COMMITTEES DISCUSSED. The report discusses in detail the activities of all the standing committees of the board, and shows clearly what functions properly belong to the board and what duties should be performed by executive officers under the direction of the board. It is impossible in this brief digest to devote space to each. LACK OF AN EXECUTIVE HEAD A SERIOUS DEFECT. To summarize the situation, perhaps rather bluntly, the fundamental weakness in the public school system in Wheeling has been executive management -by lajTnen. There are many analogies between the management of a school system by a board of education and the management of a business or a factory by a board of directors; but the fundamental principles of organization and management generally accepted in business and industry, and in progressive school systems, have not been operative in the Wheeling schools. The board of directors of a business or manufacturing corporation does not mix in the details of the work. It employs a chief executive, outlines its policies to him, makes clear to him the results to be secured, gives him control o^•er the means to be employed, and then demands that he get results. They then employ various methods of accounting, auditing, and otherwise checking up the results. In the Wheeling schools, however, the executive work of the board is mainly per- formed by committees, or even by individual members, Avho buy and sell, employ and discharge, enter into and abrogate contracts, direct employees, and attend to countless details usually left to executiACs and their subordinates. In the sense in which the term is used in the business world, the board has no chief executive, and there is little e\idence in the plan of organization to show any realization of the need of one. Let the business man on the board imagine what would happen to his bank, or store, of factory, if it were managed li>- a committee of outsiders who dipped into the business for, say, two hours each week. The conduct of a big school system is a more complex, difficult, and technical job than merchandising or banking. What is needed is the adoption of a plan by which the board will get things done in responsible ways, and enforce responsibility, without doing the things themselves. 12 EDUCATIOIs^AL SUI5VKY OF WHEELING, W. VA. The board should occupy itself mainly with directorial and inspectorial functions, lea\ing detailed executive labors to their specialized and experienced executive oflBcials — the superintendent of schools and his subordinates. FUNDAMENTAL NEEDS IN WHEELING. Briefly stated, some of the things which need to be done are: (1) Eliminate the subdistricts, except tor attendance purpases. (2) Eliminate the local commissionerships, and have board memljers elected at lai^e. (3) Pro^^de a small board of men and women who will lie lieyond the reach of local, petty, personal, and political influences. (4) The board should delegate responsibility and authority to its chief executive, provide the necessary means, demand results, and then stand aside and let the super- intendent and his organization get results. (5) The board shotdd adopt impersonal ways of checking up results, eflSciency, and economy. (6) The board should take the community into its confidence fully, at all times, and keep the public informed as to policies, needs, and results. NEW LEGISLATION ESSENTIAL. The laws go\erning the independent school district of \Mieeiing are in a confused, fragmentary', and archaic condition. The complete charter legislation which goAems the district is not in the possession of the board , nor an\ of its officers, nor of the public library which is under the control of the board. The school laws applicable to ^Mieeling should be completely rewritten on the basis of the l^est modern practice. The report contains detailed suggestions concerning those matters which .«hould be included in State legislatures, and also those which should be cared for by rules and regulations or other local legi.slation by the board. II. THE LEGISLATIVE PROGRAM. There is a commendable tendency in progressise States to eliminate special charter legislation for independent city school districts. WTien the State drafts a good general law for the purpose, it saves a city a good deal of special maneuvering simply to come in under it. If Wheeling does not choose to follow this course, it is recommended that, in rewrit- ing the charter, the general State legislation be accepted so far as it is suited to condi- tions in \Mieeling, and that special legislation be sought only in so far as the general legi.slation is not suitaV)lo. NECESSARY DISTINCTION BETWEEN STATE LEGISLATION AND THE RULES AND REGULATIONS OF THE BOARD. Only the more general and fundamental things should be accomplished by State legislation. Matters of detail .should be left to the by-laws, rules and regulations, and other legislation by the board. In the following summary of the things to be taken care of in the proposed reorganiza- tion of the affairs of the independent school district of AMieeling. those matters which are usually best taken care of by Sink legislation are designated b> the letter (S): and those which are bast included under the 7~ules and regulations or other legislation of the board are designated by the letter (R) THE LEGISLATIVE PROGEAM. 13 SUMMARY OF POINTS TO BE COVERED. (1) The subdistrict divisions should be abolished, except for atteudance pur- poses. (S) (2) There should be a school board of five members, elected at large, one member- being elected each year, for a term of Rve years. (If elections must be biennial, then the term should be six years, one-third of the board, as nearly as may be, being elected at each el ection . ) ( S ) (3) It is desirable, though not so essential, that members be nominated by petition and elected on nonpartisan ballot, at special school elections, held in the school build- ings, and directed by the board of education. (Sj (4) Board members should be citizens of the United States, and residents of the city for at least three years immediately preceding election. (S) (5) No salary or other remuneration should be paid to board members. This does not preclude the payment of traveling and other necessary expenses involved in the conduct of the board's business. (S) (6) When a vacancy occurs other than by expiration of term of office, it should be filled by the mayor (subject to confirmation by the council ) until the next school election, when it should be filled by election for the unexpired portion of the term. (S) (7) A specific day and hour should be fixed for the first meeting of the board subse- quent to the annual election, at which time the board is organized for the year. (S) (8) A specific day and hour should be fixed for the regular monthly board meetings, and a method prescribed for calling special meetings. (Rj (9) The board should have !no standing committees except the committee of the whole. (R) (10) When tasks arise demanding committee work, the board should appoint tem- porary special committees. (R) (11) The superintendent of education should be made the chief executiv'e of the board of education in its administration of all aspects of the school system. (S) (12) The board should appoint the superintendent for a relatively long term of three or four years, subject to removal only for cause by a four-fifths vote of the board. (S) (13) In Wheeling the board should create (if not already created) and pro\T.de for the following positions sul:iordinate to the chief executive: (1) Business assistant (who also should he clerk of the board); (2) manager of properties (or director of l:)uildings and grounds), subordinate to the business assistant; (3) director of census and attend- ance; (4) director of health (including both medical inspection and physical educa- tion), (5) primary supervisor. Beyond these, the present pro\'ision of special super- visors, principals, teachers, nurses, etc., appears to be good. (R) (By-laws.) (14) Outside of the major executive organization the lioard should proAT.de for and appoint for only part-time or occasional duties an attc rney, a treasurer, and an auditor. (R) (By-laws!) POWERS AND DUTIES OF THE BOARD. (15) The board should possess corporate powers: The power to acquire, hold, lease, and sell real and personal property; to receive bequests and donations; to sue and be sued; to condemn property needed for educational purposes; and to perform other corporate acts required for the management and control of the schools and other agencies committed to its care. (S) (16) The powers and duties of the board of education should be: (o) To determine all questions of general policy to be employed in the conduct of education. (S) (h) To create, abolish, modify, and maintain such positions, schools, divisions, classifications, etc., as may be necessary for the efficient administration of the work. (S) 14 EDUCATIOXAL SURVEY OF WHEELING, W. VA. (c) To have the care, custody, title, control, and safekeepins; of all school property or other property of the city used fcr educational, social, or recreational activities and not specifically placed hy law under the control of some other hody or officer, and to prescril)e rules and resulatious for the use and preservation of such prop- erty. (S) {(I) To purchase new school sites or additions to sites, and to order new buildinsrs or additions to buildinsrs erected, as the needs of the schools and other educational, social, and recreational agencies under their control may necessitate; and to approve all contracts entered into. (S) {(■) To rent or lease property required for the use of schools or other agencies main- tained and directed l)y the board. ( S) (/) To establish and maintain such free elementary schools, intermediate schools, high schools, kindergartens, vocational and industrial schools, technical sc-hools, night schools, part-time or continuation schcols and classes, vacati^m schools, open-air schools, schools for adults, schools for delinquents, schools for mentally and phv.«ically defective children, or such other schools or classes as the board shall deem necessary to meet the needs and demands of the city. (S) (g) To estalilish and maintain libraries and museums which may be open to the puiilic, to organize and maintain public lecture courses, and to estai)Ush, equip, and maintain play grounds, recreation centers, social centers, and reading rooms. (S) (/() To authorize the form.ulation of the annual budget of expenditures for the schools, pul-lic library, ancl other agencies maintained by the board, and to pass upon and adopt such l)udget as the work appears to necessitate. (S) (f) To fix the annual tax levy for education. (S) (/■) To fix the salaries of all officers and employees. (S) (k) To approve all expenditures made. (^) (I) To approve all c:cntracts entered into. (S) (Hi) To authorize the formulation of the by-laws, rules, and regulations needed for the direc-tion and management of the schools and other agencies and actixities imder the board, and to approve such by-laws, rules, and. regulations before they become operative. (S) (n) To authorize the courses of study which shall be given in the schools or by other educational agencies directed and maintained by the board, and to approve the con- tent of such courses before they l)ecome operative. (S) (o) To authorize the selection and detorniination of such books, maps, globes, apparatus, furniture, tools, and other equipment ancl supplies as may he necessary for the proper and efficient managen\ent oi the schools and other educational, social, and recreational agencies and activities under its management and control, and to approxe such selections and determinations liefore purchases are made. (S) (p) To authorize the purchase and provision of such l)o<>ks, mai)s, glolies, appara- tus, furniture, tloyees are selected. (S) (s) To authorize the establishment of an eflScient sj'stem of certification of teachers, ami the preparation of eligil>Ie li'its. (S) (0 To recpiire the sujjerintencent to nominate all a.'^sLstants, directors, and super- visors 01 special department-, ])rincipals, teacher-^, physicians, nurses, janitors, and other officers and emi)l pass upon and approve all nominations before appointment-* are made, and U* make all appointment'^ and approve all contracts. (8) (II) To authorize the determination of plans for attendance, census, classification, grading, ])romotion, transfers, giacluation from schools and courses, and other matters involved in the management and control of the pupils and students, and to approve all such plans l)efore they ])ecome oi^erative. iS) (r) To authorize the determination of plans for testing, recording and reporting the degrees of profic-iency attained by the ])upils in the several classes, grades, and schools; approve such plans before they are put into operation; and to pro\Tide the means necessary for making the jjlans operative. ( S) ("•) To authorize the preparation and pul)lication periodicallv of re])orts to the community which set forth in a clear and intelligil»le manner the character of the efforts, degrees of achievement, working conditions, financ-e, and further needs of the THE LEGISLATIVE PROGRAM. 15 schools and other agencies maintained and directed by the board; to approve such reports before they are published ; and to direct their publication and distribution. (S) (.r) To require their officials to make such reports of the educational and other activities under their charge as may be legitimately requested by county, State, or national authority. (S) (y) To perform any duty imposed upon boards of education by the laws or admin- istrative regulations of the State so far as they may be applicable to the schools or other educational agencies and affairs of the district and not inconsistent mth other legis- lation affecting the district. (S) (z) To prescribe such by-laws, rules, and regulations as may be necessary to make the State legislation effective, and for the conduct of the proceedings of the board, and for transacting all the affairs of the Ijoard that relate to the management, operation, control, maintenance, and discipline of the schools, public library, and all other edu- cational, social, and recreational agencies and activities under its charge or direction. (S) {aa) To x)erform such other duties and to possess such other powers as may be re- quired to administer the affairs placed under its control and management, to execute all powers vested in it, and to promote the best interests of the schools and other agencies and activities comndtted to its care. (S) POWERS AND DUTIES OF THE SUPERINTENDENT. (17) The superintendent of schools should possess the following powers and be charged with the following duties: (a) To serve as the chief executive officer of the board in its conduct of the schools and of other agencies and activities committed to its care. (S) ( h) To attend all regular and special meetings of the board, and to cooperate and advise -ndth all committees of the board. (S) (c) To exercise the right to speak on all matters before the board, but not to vote. (S) (d) To enforce all provisions of law and all rules and regulations relating to the management of the schools and other educational, social, and recreational agencies and activities under the direction of the board of education. (S^ (<') To prepare and submit to the board for approval by-laws, rules, and regulations needed for the direction and control of the schools and other agencies and acti-sities under the charge of the lioard. (S) (/) To prepare, in conference and cooperation with the directors and supervisors of special departments, principals, teachers, librarians, and other competent members of the organization, the content of each course of study authorized by the board of education. (S) (f/) To select, in conference and cooperation with the directors and supervisors of special departments, principals, teachers, librarians, physicians and nurses the text- books and other books, apparatus, maps, charts, tools, e(|uipment, and all other sup- plies and appliances needed for the activities of the schools and other agencies under the care of the l)oard. (S) (h) To determine the boxmdaries of school attendance subdistricts, subject to the approval of the board. (S) • (0 To investigate the need of and recommend to the board provision for school facilities in the several subdistricts. (S) ij) To have charge of the operation and maintenance of the buildings and equip- ment of the schools and other agencies imder the board, the maintenance of grounds, and the purchase, storage, and distribution of books, maps, charts, apparatus, tools, and all other ecjuipment, materials, and supplies. (S) (k) To have charge of the system of certification of all teachers and-other employees, except as otherwise pro\aded' for by law, and to prepare, as occasion demands, eligible lists for all types of positions. (S) (/) To noniinate as needed the assistants, directors and supervisors of special de- partments, principals, teachers, physicians, nurses, librarians, janitors, clerks, stenog- raphers, and other emplovees. authorized by the board. ( S) (m) To recommend, subject to the approval of the board, the salary to be paid each official or employee of the board . (S) (n) To have supervision and direction of assistants directors, and supervisors of special departments, principals, teachers, librarians, physicians, nurses, attendance officers, janitors, and other persons employed in the conduct of the schools and other agencies under the board. (S) (o) To assign principals, nurses, janitors, librarians, and other employees to the schools or other place where their work is to be done : to transfer them from one school 16 EDU("ATIOXAL SURVEY OF WHKKLINC, W. VA. or other place of work to another: and to report immediately such transfers to the board for consideration and action. (Si [p) To assign teachers to schools, grades, classes, and courses according to the needs of the service: to transfer teachers from one school to another, from one grade to another, from one class to another, according to the needs of the service : and to report immediately such assignments and transfers to the board for its consideration and action. (8) (q) To report to the board violations of jegulations and cases of insubordination; and in cases sufliciently grave to warrant it, suspend any official or employee under the direction of the superintendent until the next regular meeting of the board when all the facts relating to the case shall be submitted to the board for its consideration and action. (S) (/•) To recommend for discharge or retirement any employee under his direction whose influenc3 or ser^•ices are so unsatisfactory as to warrant such action, subject to the approval of the board. (S) (s) To prepare, in conference \vith the business assistant and others in possession of the necessary facts, an annual budget, showing in detail the appropriations necessary to meet the "estimated needs of the ensuing school year, and submit the same to the board for consideration and action. (S) (t) To recommend to the board transfers from one budge tarj- appropriation to another as conditions may require. (S) (u) To have power, within the limits of the detailed budget approved by the board, to approve and direct all purchases and expenditures, making report to the board at each monthly meeting, and at any other time when the board may request it: to report proposed detailed expenditures prior to action, whenever the board may request the same, for its consideration and action. (S) (v) To have supervision and direction over all acti\-ities involved in the census, the enforcement of the attendance law^s, the classification, grading, promotion, disci- pline, and the organization and management in general of the pupils and students. (ir) To have supervision and direction over courses of study, methods of edica- tional procedure, the working conditions of pupils and teachers, standards of achieve- ment, the sujx'rvisory labors of special supervisors, princij)als, and departmental heads, the training of" teachers in service, the measurement of educational achieve- ments, and every other professional factor, agency, or activity involved in the effi- cient conduct of education. (Si (r) To make decisions in the case of controversies or conflicts arising in the ad- ministrative organization of which he is the head, subject to appeal to the board. (S) (y) To decide all matters of detail purely ministerial and administrative in the application of laws, by-laws, rules, and reguiatious to the concrete situations that are met with; and to decide any matters that may ari^^e concerning which no specific provision is made in the legislation, reporting his decisions at the next regular meeting of the board following such decisions. (S) THE BUSINESS ASSISTANT AND CLERK OF THE BOARD. (18) The business assistant to the superintendent and clerk of the board, before entering upon the duties of his office, should execute a l)ond in such sum as directed l)y the board, conditioned upon the faithful discharge of his official duties, and delivery to his successor of all district projwrty jx'rtaining to his oflice or in his custody. (19) The business assistant, under the supervision and direction of the superin- tendent, should perform the following duties: (a) Act as purt-hasing agent, receive, store, and distribute the books, supplies, apparatus, anfl other materials and appliances authorized by the board. (R) (b) Represent the l)oard in negotiations relating to the construction, repair, and maint<^'nance of school pronerty. (R) (r) Recommend to the board through the superintendent such assistants, clerks, janitors, engineers, for<'men, and mechanics as shall be needed for continuous employ in the department under his charge; and have authority to employ for brief periods such workmen as are necessary for the execution of the labors of his department, and to di.scharge the same. (R) (r/) Super\L«e all matters of repair, and have general charge of all buildings under the charge of the board . (R) (e ) Make and keep accurate and reliable real and personal property records which shall show the cost, time of purchase or acquisition, present value, and location of the property. (R) THE LEGISLATIVE PROGRAM. 17 if) Cause the property of the board to be insured in such amounts as the board may from time to time direct, and keep a record of insurance placed on school prop- erty. (R) ^ ^ ^ (g)^ Make to the board through the superintendent written monthly report of the condition of the buildings and other property of the board, as to repairs, construction, and improvements, including such requests of principals as require action of the board, with recommendations thereon. (R) (h) Draw up or examine all contracts and other engagements in which the board is a party. (R) (i) Receive tuition fees, fines, money from the sale of books, shop construction, and other school property and senices. from other buildings, and from other sources, except such as are paid to the treasurer of the board according to law, and deposit all moneys collected l)y him with the district treasurer at least once each month. (R^i (j) Audit all claims, approve all bills, and submit the same to the auditor of the board for audit and approval. (R) (k) Audit all cash collections made by the agents of the board, and determine the kind of form of reports to be required of such collecting agents. (R) (I) Keep the revenue and expense accounts, asset and liaVdlity accounts, budget allowance ledger, registers of purchase orders, vouchers and warrants, expenditure distrilvation record by schools, pay-roll records, registers of leases; rents, bonds, and building construction, and other contracts. (R) (m) Draw all warrants in pa^Tnents of claims against the board. (R) (??) Submit to the board a monthly report of receipts, disbursements, and budget balances, and an annual report at the close of the fiscal year. (R) (o) Act as custodian" of all contracts, securities, documents, title papers, books of record, and other papers belonging to the board. (R) (p) Have supervision and direction over the director of properties, janitors, and other continuous or temporary employees of the department under his charge. (R) {q) Perform such other duties as may be assigned by the superintendent under the authorization of the board. (R) (20) The business assistant, in his capacity of clerk of the Doard, should perform the following duties: (a) Perform the usual functions of secretary to the board. . (R) (h) Keep the minutes of the meetings of the board, and a calendar of all matters referred to committees and others, and report action or nonaction on the same at each regular meeting. (R) {(■) Send %\Titten notices to board members of both special and regular meetings of the board, with calendar of all matters to be brought before the meeting so far as these are knovvn at time of sending the notice. (R) id) Receive and reply to all communications to the board according to the directions of the board. (R) (e) Perform such duties as are prescribed by law or by the by-laws of the board in connection with school elections of every kind. (R) The legislation above suggested will provide for good organization and procedure upon the administrative level of the management. It is not possible here to enter into a full enumeration of all the laws, by-laws, rules, and regulations that should be enacted for the governance of the schools. The things to be provided for are \eT\ numerous and can be ascertained by an examination of the complete school code of West Virginia, or other States, together with an examination of manuals of rules and regulations of careful school boards. MEETINGS OF THE BOARD. One way of estimating the efficiency ofthe board is to note the regularity \vith which the members attend the meetings. For this purpose an examination was made of the minutes of the board, and the attendance noted during the three years from January 1, 1918, to December 31, 1920. During tliis period, the board held 37 regular meetings, 9 special meetings, 1 ad- jomned meeting, and 7 meetings at which there was no quorum; total, 54 meetings. Sixteen members have been connected with the board for the entire three years; of these, 1 member attended all of the 54 meetings; 1 attended 53, and 1 attended 51; 65670°— 21 3 18 EPUCATIOXAL SURVEY OF WHEELING, W. VA. only 9 others attended more than 22 meetings. One member has attended but one meeting of the board in three years. In 1918, when 16 meetings were held, 7 members attended only 8 meetings or less; in 1919, when 21 meetings were held, 8 members attended only 10 meetings or less; in 1920, when 17 meetings were held, 8 members attended only 8 meetings or less. The following table shows the number of meetings held during the three years, and the number of members present at each: Table I. —Attendance of members at meetings of the board of education. Number of meetings. Three j-ears' total. Aggre- gate at- tendance. 1918 1919 1920 18 1 1 3 4 9 8 9 8 5 2 4 18 3 1 3 2 3 3 2 2 1 51 16 1 2 3 2 3 2 2 4 3 4 2 1 64 135 14 13 112 117 10 96 5S 20 2 1 36 1 1 7 Total It; 61.9 21 61.9 64.4 54 62.7 771 Of the 54 meetings held during the three years, 7 had fewer than 11 members present, or a quorum: at only 8 meetings were there more than 15 members present; only 1 meeting was attended by as many as 18 members. The per cent of attendance of memliers for the 3-year period was G2.7. In this connection, it may be noted that the lx)ard requires 75 per cent performance from the children in the schools as a condition of promotion. SCHOOL CENSUS. A school census is taken annually in \Mieeling, but it does not appear that the board makes any special use of the data thus secured, for no analysis has been made of the figures. Further, the work of enumeration is very carelessly done, and the reports are quite unreliable. For example, an analysis of the 1920 school census figures was made by the survey staff, in order to ascertain how many children were reported of each age. A compari- son of these figures with the figures for enrollment in nine pul)lic elementary schools and six parochial schools shows that there are enrolled in these schools 9-19 more children under 14 years of age than are accounted for in the census reports. Again, an analysis of the 1915 census enumeration was made, for comparison with correspond- ing figures of five years later. The total number of white children reported was 10,315; of these, the ages are not given in 2,182 cases, or more than 20 per cent of all. Of 238 colored children, the ages are not reported in 1 18 cases, or nearly 50 per cent of all. Such reports are practically valueless, and payment lur them is a watte of pulilic money. THE LEGISLATIVE PROGRAM. 19 Table 2. — Comparison of school census vit.h school enrollment, 1920 — Number of children reported of each age. Age in years. Census enumer- ation, May, 9 public elemen- tary Septem- ber, 1920. 6 parochi- al schools Septem- ber, 1920. Not in elemen- tary schools. Under6 6 to 6.5 6.5 to7 7to7.5 7.5 to8 8to8.5 8.5 to 9 9to9.5 9.5 to 10 10 to 10.5 10.5 to 11.... 11 to 11.5 11.5 to 12.... 12 to 12.5 12.5 to 13 13 to 13.5.... 13.5 to 14 14 to 14.5.... 14.5 to 15 15 to 15.5 15.5 to 16.... 16 to 16.5 16.5 to 17.... 17 to 17.5 17.5 to 18.... 18 to 18.5 18.5 to 19.... 19 to 19.5.... 19.5 to 20 20 to 20.5.... 20.5 to 21 Over 21 Not reported Total.. 1,741 137 339 41 School census figures should be checked up more carefully to insiu-e accuracy and completeness, and then they should be carefully analyzed and studied with a \-iew to placing the facts before the board. These facts should include the number of children of each age who ought to be in school; where they live; how many are actu- ally enrolled in public, private, or parochial schools; how many are working at gainful employment; other reasons for nonattendance at school. Progressive communities are now supplementing the formal census enumeration by providing for cumulative record cards, to be made and kept up to date by the attendance department. The card contains information concerning residence, names and birth places of parents, date of birth of child, sex, nationality, kind and grade of school attendance or reason for nonattendance; name and address of employer and nature of employment if employed, etc. If such cards are kept up to date by the addition of names of children moving into the community the essential facts about every child of school age can be available at all times. Early in each school term the census reports should be checked against the enroll- ment in the public, private, and parochial schools to ascertain what children are out of school. The attendance officers can then ^dsit the homes of these children and follow them up. Census information, when properly digested and utilized, ^^-ill thus function more completely in the administration of compulsory school attendance, 20 EDUCATIONAL SURVEY OF WHEELING, W. VA. child labor lesrislation, and the ^rantins: of work permits. It will also ])rove valuable in stuclyinj? the growth of the community and the shifting of population, and thus in planning school accommodations for the future. m. FINANCES AND ACCOUNTING. COMPARISON OF CITY SCHOOL EXPENDITURES WITH THOSE OF CITY DEPARTMENTS. (a) City government enjoys the advantage of having the various city revenues to meet part of city expenses; whereas the schools must lew a tax for almost their entire expenditures. Therefore the tax rates of city and schools are not comparable, nor are they comparable ^vith tax rates of other cities not organized in like manner. (b) Comparison between city departments and schools should be made only on basis of expenditm'es. Of the total amount expended by both city and schools from 1917-lS to date the schools alone have expended but 35 per cent; schools and library together, 36 i per cent. (c) School costs in ^^'heeKng have doubled since 1915, but this is true also of sc-hools throughout the country. Increase in teax^hers' salaries and increase in other costs, together with additional school activities, are responsible for increase in 1920 school tax. (d) Other public expenditures in ^Tieeling have increased in even greater propor- tion than the schools. Since 1917 the expense of the city council has increased 224 per cent; bureau of streets, 144 per cent; bureau of fire, 142 per cent; bureau of police, 98 per cent; bond principal and interest, 95 per cent; biu-eau of health, 57 per cent; Avhereas the school expenditures have increased but 55 per cent. (See Table 1.) FmANCmO AND ACCOUNTING. 21 TllOOt^OOOOt^OOOM 'OS ) ii -< o o> CO CO cs . lOOOOC^ICNCirOOOCOO 010«-HOM'1"CT>OOCOO j cj q? --■ cj o' CO d o c o o !^ss; 2|2SS?3S = O5ccoo''-o»o^r^^oc loot^cc-HOcoo: Ol ICM c» t^iOTji" rooctousMco—iococ d « ^ (N cri C5 o • ■ !?§q_g; ; ■<)< -) X -o •* CO c S8 2^ •sg • c 0*0 o"S — : S g g <■ ■ ■ "■ ■ "~ Is if 25 22 EDFCATTOXAL SUP^VEV OF WMKKIJNC, W. VA. (V) Citv of ^^^leeling includes more taxable property than the independent school district : therefore city can raise as much money hy a smaller tax rate as the schools can l»y a larger tax rate. (f) Comparison between tax rates of 1910 and 1920 show school tax rate to have increased 54 per cent, and city tax (based on equal amount of taxable property to ha,ye increased 50 per cent. ig) Conclusion to be drawn from the aV>o\ e is that school tax of 8fi cents in 1920 is logical and in line with what other cities are doing for their schools. COMPARISON OF WHEELING SCHOOL EXPENDITURES WITH THOSE OF OTHER CITIES. (a) The taxable wealth in the independent school district of \Mieeling for 1920 is $65,404,955.' But a study of school taxation by 45 cities of 30.000 to 100,000 popula- tion in 1917-18 reveals the fact that ^^^leeling was considered as not assessing property on a 100 per cent valuation, and if so taxed its taxable wealth in 1917 would l)e $93,534,000 instead of $02,893,115 as given. (6) In comparison with the same 45 cities, \Mieeling ranks 33 as to total school expenses i excluding additions and improvements) ; it ranks 38 in expenses for general control; 32 in instruction cost (day school): 34 in cost of plant operation; 29 as to expenses for auxiliary agencies; and 2G fixed charges and interest. (c) Wheeling's cost in 1919-20 per pupil average daily attendance as to total school expenses is $7G,G9; for general control, .$3.16; for instruction (day school), $54.13; operation of plant, $7.34; upkeep, Sl.Vy. auxiliary agencies, $2.26; fixed charges and interest. $2.64. THE ACCOL^^TS OF THE WHEELING PUBLIC SCHOOLS. (a) The public schools of ^^'heeling unfortunately, like numerous other school systems of the country, maintain no accounting system in the technical sense of the word. By this is meant a douV)le-entry set of books from which balance sheets, op- erating, and other anah-tical statements may be currently drawn. (b) The school accounts of WTieeling consist of a voluminous record of receipts and disbursements, a portion of which is duplication, with but little separation as to character of expenditure, and mixed up as to distribution of functional costs. There appears to be a misunderstanding as to which funds are the proper ones to make certain charges against and have the charges legal. Instances exist where abatements of expenditures are sho%vn as revenues; and also the opposite, where aliatements of rev- enues are shown as expenditures. Expenditures pertaining to different school years are not clearly segregated. Expenditures, such as repairs and improvements, are grouped together, although one is expense and the other investment. (r) The annual financial statements of the schools are to be criticized as masses of imdigested data, giving little information to the public, and of practically no value for administrative review. (d) The method of filing is antiquated and the filing apparatus obsolete. (e) As for the store records, it would be unfair to say that there are none, inasmuch as memoranda totals of quantities are occasionally made; but, nevertheless, the requisitions on which V»ooka and supplies are delivered from the storeroom are not priced nor extended and are therefore not recorded in any financially usal)le form. (/) The schools are doing a business of from $300,000 to $400,000 ( in 1 9 1 9-20 it reached $500,000; in 1920-21, $1)19,425.36), but the accounting staff consists of one man who acts as clerk of the l)oard, bookkeeper, cashier, payma.ster, filing clerk, purchasing agent, and storekeeper. The only assistance he has is a portion of the services of a stenographer, who acts also in like capacity for the superintendent of schools. ' Including public utilities, $72,026,205. FINAI^CI^'G AND ACCOUNTING. 23 (g) Inquiiy develops the fact that it has not been the policy of the board to author- ize, or the clerk to request, attendance by him at annual conventions of school ac- countants -svhere modem and advanced methods of school accounting are reviewed and discussed. Dissection of School Accounts and Preparation of Balance Sheet, Operating and Other Financial Statements. (a) The total value of school property in \Mieeling, after deducting depreciation, is .'^1,071,45-1.13. While it would cost twice this amount to replace it, this is the amount it approximately represents in modern educational values. (6) In 1919-20 the schools expended ?421,227.38, of which $376,427.47 (89.4 per cent) was for expense (salaries, supplies, and repairs V. and $44,799.91 (10.6 per cent) was for investment (additions and improvements). (c) The total revenues were $42(i,400.97, of which $337,884.10 went to the school fimd and §88,516.87 to the building fund. (d) The following show conditions as of June 30, 1920, and indicate the forms in which it is suggested that the several accounts be kept: INDEPENDENT SCHOOL DISTRICT OF WHEELING, W. VA. Balance Sheet (All Funds Together). ASSETS. Land $315,101.66 Instructional buildings 650, 652. 47 Instructional equipment 77, 700. 00 Janitors' residences 28, 000. 00 Instructional supplies i 5, 000. 00 Insurance (prepaid) i 500. 00 Taxes receivable (delinquent) from current and prior years i 5,000.00 Cash 51 , 312. 49 1, 133, 266. LiABiLrriEs. outstanding $120, Accounts payable ^ 46, Surplus 56, Investment of school corporation 910, 000.00 138.90 812.49 315.23 266.62 Operation Statement (School Fund). Expenses pertaining to 1918-19 ' $4, 021. 86 Expenses pertaining to 1919-20 371, 405. 61 375,427.47 School fund revenues <$337, Excess of expenses over operation reve- nues 37, 543.37 427.47 Capital Account Statement (Building Fund). Investment pertaining to 1918-19 a SI, 000. (X» Investment pertaining to 1919-20 44, 799. 91 Excess of revenues over investment 42, 716. 96 88, 516. ; Building fund revenues. 1 Estimated. 2 Deficit in school fund June 30, 1920. 3 These two items make a total of So ,021. 86, the school fund deficit on June 30, 1919. * Available for school operation, upkeep, and miscellaneous ( 5 Available only for additions and improvements. J4 i:DT^rATTONAL SURVEY OF WHEKLIXG, W. VA. Table 4. — Stateynent of property of the independent school district of Wheeling, as of June SO, 1920. Land Total. j (original : cost). Instructional buildings. Type of construc- tion. Total Elementary schools Washington Clay Jefferson Union Center Webster Madison: Old building New building Ritcher McKinley Lincoln' Secondary schools High school— main building Home economics building. . Athleticfleld §107,14.5,413 $31,510,166 720,393 52,000 52,000 46,500 97,000 51,613 84,000 212,280 61,000 34,500 29,500 123,000 10,000 10,000 8,000 15,000 10,000 5,000 25,000 25,000 10,000 5,000 150, 000 140,000 10,000 4,210,166 Brick 1887 ...do 1862 ...do 1897 ...do 1908 ...do 1880 ...do 1893 ...do 1918 ...do 1921 ...do 1872 ...do 1887 ...do 1893 Brick 1915 ...do (=) (2) 12,295,947 11,095,947 12,000 Instruc- tional equipment (cost). Janitors' residences. Items. Type of construc- tion. Date. Cost. $77,700 $28,000 41,700 28,000 Frame Brick ...do ...do ...do (') iFramc ...do 1887 1874 1897 1884 1882 Washington 3,000 3,000 2,000 5,000 3,000 6,000 5,500 3,200 6,000 2,000 3,000 3,000 Clay 3,000 3,500 Union 4,000 Center 3,500 Webster Madison: Old building 1889 1890 (2) 1885 4,000 3,000 2,500 Lincoln » Frame 1,500 36,000 (') High school — main building 32,000 4,000 Athleticfleld 1 Janitor has his residence within the school building. « TJatf of construction not obtained. » Lincoln School is a school for colored children, and has both elementary and high-school grades. * The grounds of the Lincoln .School are a part of the city commons, and therefore title to the land is not vested in the board of education. FINANCING AND ACCOUNTING. 25 Table 5. — Statement of 1919-20 expenditures by character and function, as of June 30, 1920. Amount. Per cent. Total exjfenditures. $421,227.38 376, 427. 47 Finaiicing i Direction and control Teaching supervision Instructional service Operation of buildings and grounds Upkeep of buildings, groimds, and equipment. Auxiliary agencies and other activities 12,829.01 9,525.82 5,820.80 266,970.91 35,587.74 34,736.45 10,956.74 3.0 2.3 1.4 63.4 8.S 8.2 2.6 44,799.91 10. ( Additions and improvements . Bond payments 34,799.91 10,000.00 1 Interest on bonds, interest on bank overdrafts, commission to city collector on collections, and fidelity insurance. Table 6. — Statement of revenues for 1919-20. Building fund. Total. 3,516. Cash balance, July 1, 1919 Federal aid (Smith-Hughes fund). State funds i Local taxes: Inl919-20 Delinquent from prior years . . Tuition fees Sales of material and supplies Depository interest Miscellaneous revenues 1,074.25 34,379.51 292,462.74 4,738.95 1,384.46 1,679.38 1,741.09 423. 72 ,031.51 ,074.25 48,483.12 752. 42 472. 70 327. 81 ,945.86 , 491. 37 ,384.46 ,679.38 ,213.79 751.53 1 Not funds in the nature of State aid, but funds representing a tax on corporations and penalties upon estates of deceased, collected by the State in Wheeling and so returnable to the locality. TABh-E 7 .—Consolidated balance sheet as of June SO, 1920 (all funds). ASSETS. Fixed property: Land $315,101.66 Instractional buildings 050, 652. 47 Instructional equipment 77, 700. 00 Janitors' residences 28, 000. 00 Total 1,071,454.13 Current assets: Stores (instructional supplies) Insurance (prepaid and unearned) Taxes receivable (delinquent) Cash— Building fund. . . .$51, 312. 49 School fund 46,138,90 15,000.00 2500.000 35,000.00 < 5, 173. 59 Total Grand total Estimated on hand at end 15, 673. 59 1,087,127.72 fiscal year. 2 Estimated. 3 Delinquent taxes of current and prior years, LIABILITIES. Funded debt: Bonds outstanding $120, 000. 00 Capital investment 951, 454. 13 Total Current UabiUties Accounts Surplus.. 1,071,454.13 (=) 15,673.59 15,673.59 Total Grand total 1,087,127.72 I Credit balance, representing overdraft on bank. 5 Accounts payable undoubtedly existed at this time, but they were not readily obtainable from the accounts as maintained. 65670°— 21 4 EDUCATIONAL SURVEY OF WHEELING, W. VA. Table 8. — Operation statement {school fund) as of June SO, Deficit from 191S-19 114,021.86 Expanses of 1919-20 371,405.61 Total 375,427.47 Revenues 1919-20 » $337, 8S4. 10 Excess of expenses over operation reve- nues '37,543.37 I Total ' 375,427.47 » This amount, with the $1,000 payable from 1918-19 building fund, makes a total of $5,021.86, the deficit in school fund at close of 1919-20. The payments being made in 1920-21 are arbitrarily distributed as above into expenses and investment. « Available for operation and upkeep of schools and for miscellaneous expenses. » The difference between the building fimd surplus ($42,716.96) and the school fund deficit ($37,543.37) is $5,173.59, which is the amount shovm as nrt cash on the balance sheet. In these two statements the technical entries necessary lo show balances to agree with bank balances (credit and overdraft) are omitted. Table 9. — Capital account statement ( building fund) as of June SO, 1920. Accounts payable from 191 s- 19 $1, 000. oo Investment for year 1919-20 44, 799. 91 Excess revenues over expenditures 42, 716. 96 Total 88,516.87 1 Available only for additions and improvements. Balance from 1918-19 i $33, 031. 51 Revenues from 1919-20 1 55, 4S5. 36 Table IQ.— Balance sheet as of June SO, 1920. (Library fund.) LIABIUnES. ASSETS. Fixed property: Land $20,063.68 Buildings 36, 207. 73 Equipment- Books 41,664.98 Periodicals 4, 058. 28 Library furniture 1, 609. 17 MisceUaneous 1, 486. 87 Total Current assets: Taxes receivable (delinquent) . Prepaid expenses Cash 105, 0.71 11,50.00 150.00 1,616.65 Total. 1,816.65 Reserves for depreciation of— Buildings 1 $3, 500. 00 Equipment 1 17, 250. 00 Capital investment 84, 34a 71 Total 105,710.09 Current liabilities: Accounts payable Surplus Grand total 106, 907. 3r. > Estimated. * Not easily obtainable from the accounts as maintained. Table 11. — Operation statemettf. EXPENOrrURES. Financing > $164. 89 Library administration and service 5, 474. 38 Building operation 2, 422. 02 Upkeep of building and equipment 1, 101. 32 Total expenses 9, 162. 61 Investment (additions and improve- ments) 2, 917. 97 Total expenditures 12, OSO. .58 Excess of revenues over expenditures. . . 1, 616. 65 REVENUES. Cash balance, July 1 , 1919 . $2,541.04 State (transmitted by State auditor) . . . M, 054. 69 Local taxes— 1919-20 9, 383. 83 DeUnquent from prior years 151. 77 490.50 Depository interest 75.40 Total 13,697.23 I Commission to city collector on collections. ' Tax on local corporations; also penalty tax on estates of deceased Total 13,697. FINANCING AND ACCOUNTING. 27 Table 12. — Independent school district of Wheeling, W. Va. — Expenditures for fiscal year, 1919-20. Per cent. Amount. Financing: Commission on collections (city collector) . Interest on bonds Interest on bank overdrafts Fidelity insurance Total. Direction and control: School elections . . . : Board of education and clerk's office Legalservices Superintendent's office Enforcement of compulsory attendance laws . Census enumeration Total. Teachin g supervision : Industrial education . Home economics Physical! nstruct ion. . Health instruction. . . Music Drawing Total. Instructional se r\ice : Day school- Elementary instruction- Undistributed White schools Colored schools Total Secondary instruction (hi^h school)- Undistributed White schools Colored schools Total. Total day school Night school- Secondary instruction — white school. Summer school — Secondary instruction— white school . Total instructional service. Operation of buildings and grounds: Day school- Elementary schools- Undistributed White schools Colored schools Total. Secondary schools- Undistributed. . . White schools. . . Colored schools. . Total. Total day school Night school- Secondary school— white school . Summersehoiol— Secondary school — white school . Athletic field— undistributed Total operation of buildings and grounds. 55,704.55 5, 625. 50 718. 96 780.00 .0 I 12,829.01 4.8 39.8 2.7 3.4 10.7 1.0 2,761.58 610.00 4, 629. 94 1,445.00 79.30 1,405.98 1, 180. 47 641.33 299.22 841.25 635.05 817. 50 120,187.39 167, 246. 62 11,338.33 14,532.27 45, 262. 63 3,939.17 J, 734. 07 262,506.41 2,699.50 1,765.00 266,970.91 2 555.67 24,422.43 1,687.48 26,665.58 17.60 2.0 7,858.34 .1 I 599.34 2.1 I 8,465.28 8. 4 I 35, 130. 86 .06' 242.74 35,587.74 28 EDUCATIONAL SURVEY OF WHEELING, W. VA. Table 12. — Independent school district of Wheeling, W. Va. — Expenditures for fiscal year, 1919-20 — Continued. Percent. Amount. Upkeep of bmldings, grounds, and equipment: Elementary schools- 0.1 6.4 .1 '$499.29 27,075.64 550 02 Colored schools Total 6.6 Secondary schools- White -schools 1.6 6,428.16 183 34 Colored schools Total 1.6 6,611.50 Total upkeep of buildings, grounds, and equipment . 8.2 34,736.45 Auxiliary agencies and other activities: 1.7 7,101.89 98.50 .1 535.75 Participation iu expenses of M'ozart School * . . 940 60 Contribution to teachers' jiension fund . . 2,280.00 Total 2.6 10,956.74 Investment: Additions and improvements- Land and improvements to land 4.1 2.7 1.3 .1 17 444.00 Buildings and heat, light, and plumbing equipment... 11,598.01 5.402.90 355.00 Total 8.2 2.4 34,799.91 10,000.00 Total investment. 10.6 44 799 91 100.0 > Teaching service of industrial education, home economics, physical instruction, etc., not distributed by school buildings. > Miscellaneous building operation expenses not distributed by school building. ' Miscellaneous upkeep expenses not distributed by school biulding. ♦ The Mozart School expenditures are shared by three diflerent school districts, of which the independent school district of Wheeling is one. (c) The point that referendum approval of a bond issue authorizes a tax levy for a bond ])rLncipal and interest fund in addition to other school taxes seems never to have been considered by the board. C/) The legality of the school le^^ for 1920, which includes a tax for high school, from a reading of such sections of the school law as could be found, appears question- able. But the law which relates to the independent school district of \Mieeling is such a matter of patchwork that the question is probably only to be solved by an exteasive legal search and then confirmed by a court ruling. {(J) The present policy of the board in regard to the teachers' pension fund as to appropriating a sufficient amount yearly to pay pension annuities without the prin- cipal of the fund being impaired should be incorporated p>ermanently in the rules and regulations of the board. ih) A statement of the expenditure.^ of the schools in 1919-20 liv fiinctions has been prepared in detail and will })e shown as an appendix to the report. THE PUBLIC LIBRARY. (a) Prior to the present year, when the board increased the library tax from IJ to IJ cents, Wheeling has taken advantage of but one-fourth of its authorized power to tax 6 cents per $100 for library purposes. (h) Compared with 10 years ago the acti%-itie8 of the librar>- have more than doubled. FINANCING AND ACCOUNTING. 29 (c) A balance sheet prepared for the library as of June 30, 1920, shows its net invest- ment to be $84,340.71, and its surplus $1,816.65. (d) An operating sheet for 1919-20 shows an excess of revenues over expenditures to the amount of $1,616.65. (e) A graph, covering period of the last 10 years, shows book circulation and cost per 100 books circulated. The cost of library administration and book service is so low as to merit criticism rather than commendation. A per capita circulation in Wheeling of 1.9 and a cost of $8.37 does not show the liberality of such cities as Chi- cago, Cleveland, and Pittsburgh, which have a per capita circulation of 2.2, 4.8, and 2.5, respectively, and which expend $10.30, $13, and $28.10 per 100 books circulated. (Analysis of library expenditures of those cities in 1916-17.) (/) Chicago spends 22.2 cents, Cleveland 62.6 cents, and Pittsbm-gh 69.9 cents per capita for public libraries; whereas Wheeling spends 21.4 cents. Obviously Wheel- ing should begin the construction of branch libraries and be more Liberal in its expen- ditures for library personnel and in its purchase of books. CONSTRUCTIVE RECOMMENDATIONS FOR SCHOOL FINANCIAL AND BUSINESS PROCEDURE. (a) What is vitally necessary for the schools is the establishment of a business department to be headed by a subexecutive who shall report to the board via the superintendent of schools. (h) Such a department should contain an accountiag staff of adequate size to furnish the superintendent, the board, and the public the same kind of financial and statis- tical information as is commonly required by any first-class business concern. (c) Modern accounting methods and procedure should be adopted. (d) Up-to-date filing apparatus should be installed; likewise other labor-saving devices wherever practical. (e) All contracting and purchasing should clear through this department, and a complete system of stores control should be put into effect. (/) All janitorial and repair service should be under the technical control and supervision of this department, and under the managerial supervision of the various school principals. (g) This department should be emphatically a service agency to the school system as a whole, to the superintendent, and to the board. (h) A modern budget system should be adopted by the board. Such a budget should be prepared on the basis of functions and should include the originating of departmental estimates by the heads of the various school departments. These estimates should be transmitted to the business department for combination and analysis, and then be forwarded to the superintendent for review. He, as the schools' executive, should be responsible for the budget in its entirety, and in its presentation to the board it should represent the policy and program which he recommends for the schools for the ensuing year. The function of the board should then be the approval or disapproval in total or in part of the budget as submitted. Upon its approval and formal adoption by the board the budget should be the superintendent's legalized authority for the ensuing year's expenditures, and he should be the administrative official to be held responsible for the board for the execution of the budget as approved. (i) An amendment to the school code should be immediately presented to the legislature, which will make mandatory the adoption of the school budget for the ensuing year prior to the close of each fiscal year, and thus eliminate the hiatus of financial authority which at present exists between the beginning of a school year and the date prescribed by law for the adoption of the budget by the board several weeks later. 30 EDUCATIONAL SURVEY OF WHEELIXG, W. VA. IV. SCHOOL BUILDINGS AND GROUNDS. DIFFICULTIES INHERENT IN THE SITUATION. The city of \\'heeling is so crowded })et\vepn the hills and the river that there are really no vacant spaces suitable in size, contour, and position upon which to locate schoolhouses in any satisfactory way, and therefore the school board is faced with great difficulty when the problem of selecting new sites arises. One of two things ■mil have to be done if the board insists on proper sites, as it should: It will be neces- sary either to enter extensive condemnation proceedings in order to clear spaces large enough, or else accessible sites must be found beyond the ordinary limits of the city and some arrangements made for transportation to these. It is recommended, therefore, that the l)oard take this matter in hand at once, and after due consideration and public discussion settle on a policy to pursue when future buildings are under consideration. Each school principal, A\ith the cooperation of his teachers, should be asked to prepare a 'pin map" sho^ving where the students now attending school live. These raaps a\Ti11 show at a glance fronx what parts of the city the children come and how, relatively, thej' are situated with reference to the present buildings. If such maps are prepared each year, then objectively they will show any possible shifting of the clientage and a hint at least of how to anticipate needs. SURROUNDINGS AFFECT THE EFFICIENCY OF A SCHOOL. In addition to the problem of congestion as it relates to needed sites, the pro])lem3 of dust and noise should receive more consideration than heretofore. Union School site is a horriljle example of selecting a lot too close to a noisy, dirty, and dangerous railway; and the Ritchie School is not much better off. The present school lots are tfitally inadequate in size to permit any playgrounds of real consequence. A real school playground, big enough. to satisfy school children, is the V)est democratizing agency possible, and far more effective most of the year for health development than any gymnasium. ORIENTATION AND LIGHTING. riassroom.s of school Imildings are l)est lighted and best purified by sunshine when the A\-indows open toward the east or west only. The lighting of all the school buildings in WTieeling is seriously faulty. In the first place, all the classrooms where it was possil)le have l)ilateral lighting. This is bad, and all thoughtful teachers know it. Under such conditions either the teacher or the pupils must face toward %\indo\vs. In mf>st cases the pupil is compelled to work in his own shadow, and because of cross lights he is handicapped in many other ways. In all future buildings the house should bo so planned and set on the lot as to give east or west exposure on the long side of all classrooms, and no windows should be set in other walls. These windows, at least five in number, should be set with sills 4 feet above the floor, and should run to the ceiling, or as dose to the ceiling as possible. They should be grouped closely together, and the glass area should be approximately one-fourth of the floor area. Adequate reasons for these directions may be found in anj' good book on school hygiene. HEATING AND VENTILATION. The hot-air heating systems found in most of the present school buildings do not represent tht Ix-st practice, nor the most economical for school buildings. A low- SCHOOL BUILDIIsrGS AND GROUNDS. 31 pressure steam heating plant is the best. Direct radiation in the rooms with ther- mostatic regulation, but mthout the use of fans, will in the long run proAe most efficient. ADEQUATE SUPPLIES OF FRESH AIR ESSENTIAL. It is almost impossible with hot-air furnaces to keep the various rooms evenly and properly heated and healthfully ventilated. In future buildings low-pressure steam heating should be installed, with ample radiation in each room, controlled by ther- mostats, and teachers should be required to regulate the ventilation through properly constructed windows. JANITOR SERVICE. The janitor service in the school buildings of 'UTieeling is, \vith few exceptions, inferior, and the prime cause of this inefficiency is due mainly to the fact that the janitors are not placed directly and specifically under the direction and control of the principals of the various schools. There should be no divided responsibility here. The principal should be held responsible for the hygienic condition and safety of the building, and this responsibility necessarily carries with it authority over the service of the janitor. The janitors should be well paid for their arduous services, and should be selected and retained by reason of their efficiency and ability to perform their ven,- important duties. Next to the principal of the school, the duties and opportunities of the janitor call for good judgment, initiative, and special knowledge almost as much as do those of any teacher. Many liberties are now being taken by the janitors of some of the buildings, such as storing their own furniture, vegetables, canned goods; doing their own family wash- ing during school hours, etc., in school buildings. Such use of school buildings is not desirable, and should be discontinued. FLOORS OF SCHOOLHOUSES. The school buildings of 'Wheeling were originally firrnished with imusually good floors, but they have been badly abused and show lack of proper care, ^fost of the old buildings were supplied with fine oak floors, and these have held up well under the abuse they have been subjected to. They are now dry; cracks have opened, and splin- ters are appearing. This is largely due to the wet scrubbings they have had to undergo. Floors should never be scrubbed with soap and water, for this is the surest and quickest way to ruin them. They should be sanded and swept clean, and then oiled and swept with some sawdust preparation containing the proper porportion of oil, sand, and sawdust. This will keep the floors cleaner, prevent clouds of dust from rising, and also prevent the boards from alternately swelUng and shrinking, as will be the case when scrubbed with soap and water. FLOORS SHOULD BE CLEANED AND OILED. All the floors of the various buildings should be thoroughly cleansed and then cautiously and properly oiled with a light oil. Oiled floors are more free from dust, last longer, look better, save work in keeping them clean, and are more hygienic than dry floors. COLOR OF WALLS. The treatment given to the walls of the schoolrooms in ^^^leeling generally \-iolates not only the canons of good taste but the reqiurements of utility. Not only are many of the rooms unsightly and esthetically annoying but the effect is even harmful, in that the rooms are darkened when more light rather than less is needed. 32 EDUCATIONAL SURVEY OF WHEELING, W. VA. Scientific investigation has determined in no uncertain terms the colors which are best to use on schoolroom walls, and school boards should make sure that a decorator who enters a schoolroom knows what is best and will then faithfully follow intelligent guidance. The follo'wing brief summary of suggestions resulting from investigations on this subject may be helpful in planning future changes: 1. The wall space between the floor and the window sills, and the chalk troughs, should be a light brown. 2. Side walls and ceilings should be in a light buff, or cream, depending to some extent on the illumination and the location of the building with reference to climate. A light gray is also acceptable. Colors from the red end of the spectrum should never be used. CLOAKROOMS. Cloakrooms are necessities in all elementarj- schools, and locker rooms for high schools. The plans of the older buildings in WTieeling made insufficient space for cloakrooms, and as a result the children's ■wraps and other articles of clothing are often piled up together, thus offering opportunity for the transmission of parasites from child to child and also preventing proper airing or drying in damp or rainy weather. BLACKBOARDS. The various school buildings of WTieeling are supplied with excellent slate black- boards, and in general these are in splendid condition. However, they are not always set at the proper height to meet the needs of the children through the various grades. In all future buildings, in those rooms designed for first and second grades, the blackboards should be set 26 inches above the floor; in those for the third and fourth grades, 28 inches above the floor; in those for the fifth and sixth grades. 32 inches above the floor; and in those for the seventh and eighth and high -school grades. 36 inches above the floor. The blackboard should be 36 inches wide, from top to bot- tom, except at the teacher's end of the room, where it .«liould be 48 inches wide. STAIRWAYS AND FIREPROOFING. If the fiu-naces. coal rooms, chimneys, stairways, and halls of school buildings are made fireproof; if janitors are careful to keep all greasy mops or rags. oils, and other inflammable materials in fire proofed rooms: and if all electric ^nring is inclosed in steel tubes and other'wise properly protected, then there is little danger tathe children or to the buildings from fires starting from within. Should a fire menace from without there will always be ample time to get the children out before they are endangered. There is little or no value in fire escapes for school children, because "with safe and adeing to sensitive children but also absorbs a great deal of needed light. The floors of this building have been badly damaged by repeated scrubbings. and should be thoroughly cleaned and then oiled. RITCHIE SCHOOL. The old building of this school should be discarded at the very earliest opportunity, for it would cost more to reconstruct it to meet modern demands than to construct an entirely new building. No money should be expended on this building, save that which is necessary to keep it as safe and clean as possible during the time it may be used. The basement should be thoroughly cleaned of all rubbish and broken and dis- carded furniture. \Mien this building was inspected by the representative of the survey commission, it was necessary to send lor the janitor, who could not be found about the building. There is too much at stake, with a building occupied by children, to allow any possible danger to arise without some responsible person at hand to take immediate action. If some imperative mi.ssion takes the janitor away from the building during school hours, some other resporu^ible person should be substituted until his return. In every such case the principal should approve the arrangements in ad^■ance. The ventilation of neither building at this school is adequate, and the teachers should all be carefully directed how to use the windows most effectively lor this purpose. Unfortunately, the newer building is situated so close to the railroad tracks that effective school work is practically impossible. With the exception of bilateral lighting, setting the windows too near the floor, and insufficient cloakroom space, this annex is quite satisfactory as far as the building is concerned. The fan room needs cleaning, and the lijie maple floors provided should be thor- oughly cleaned and oiled immediately, and scrubbing with water discontinued. WEBSTER SCHOOL. No expensive changes looking toward making this building meet acceptable modern demands should be undertaken. It should be kept in as good condition as possible, and abandoned at an early date, as soon as a new and modernly planned larger build- ing can be provided to take care of the children in this district and most of those now attending the Ritchie School. The following repairs should be made at once: (1) Correct the in.'^anitary condition of the urijial ; (2 ) cut dowm the sides of the stalls in both toilet rooms, so to give better light and better ventilation: (3) clean out the basement. esi)ecially the fan room; 1 4 I retint the walls in a light cream color; (5 1 oil the floors, and di.«continue scrubbing them with water: and (Oi guard the building carefully to prevent fires. CENTER SCHOOL. No expensive repairs should be made on this building, and it should be abandoned as soon as the board can command the means to do so. SCHOOL BUILDi:srGS AND GROUNDS. 35 MADISOX SCHOOL. It is unfortunate that in the reconstruction of the old building the windows were not changed from the old type of windows in adjoining walls of classrooms to the better plan of unilateral lighting. It is probably inadvisable to make these changes now, but the cliildren and teachers will necessarily suffer as a result of this oversight. It is not too late, however, to con-ect the faults of the toilets and urinals by install- ing modern appliances in a modern way. The white walls of this reconstructed build- ing should be tinted in a very light buff, while the ceilings may either remain white or, better, be toned down so as to forestall glaring lights. It is to be regi'etted that the assembly room was constructed at great expense with a sloping floor, thereby practically limiting its use to auditorium purposes only. At less expense in construction and furniture, it might have been made to serve as an auditorium, as a gymnasium, a study hall, a community entertainment and exhi- bition room, and for other purposes. It is inadvisable to put manual training, home economics, or any other kind of important school work in 1)asement rooms, and those classes now situated in the base- ment of this building, or any other school in the city, should be removed therefrom at the earliest possible date. Such work is very important work, and should not be handicapped by being put in unsuitable quarters. WASHINGTON SCHOOL. This building is a duplicate of the old Madison building, and is a monumental demonstration of how not to plan a school edifice. It would be poor economy to undertake a radical reconstruction of this building, and the only thing to do is to use it till such time as the board can get sufficient means to provide a new building in a better location away from the noise, smoke, and dust of the railway yards. CLAY SCHOOL. It would be imwise to undertake any substantial reconstruction of this building. It should be kept in as safe and sanitary condition as possible, until it can be displaced with a new building on a larger lot. A few repairs and changes should be made immediately: 1. The hot-air ducts of the old and displaced heating system, leading from the fiu-nace room to the various classrooms, should be carefully and securely sealed in order both to prevent dust and foul air ascending into the classrooms, and to eliminate the very definite fire hazard involved. 2. There should be better and more thorough fireproofing on the joists above the boilers and smoke pipes. The fire drills now used should be continued, and with every added improvement possible. 3. The urinal is unsatisfactory, for the slanting slate is too wide and too steep for safety. This should be cut off to a point within 16 inches of the drain, the level cement floor continued to this point, and the iron bar removed. These changes, for obAdous reasons, ■will keep this room in a much better sanitary condition. 4. Certain rooms have erroneously placed desks, and these facts were pointed out to the principal and plans suggested for better arrangements. JEFFERSON BUILDING. An additional window should be set in the east side of each classroom opening toward the east, and one in each classroom opening toward the west, and the windows on the north and south sides of these rooms should be closed up. 36 EDUCATIONAL SURVF.Y OF WHEELING, W. VA. The desks in the east rooms should all be made to face the south, while those in the ■west rooms should be made to face the north. Then, if these desks are prouped as closely as practicable to the window side, \\'ith eieht desks in a row from front to ba<'k, in five rows, the pupils will then get light from the left and the teacher will not have to face the litrht. \\'hile this arrangement wiW not give so much area of glazing to each room as they now have, the light ■nill be much better and the teacher \\i\\ not have to face the light. The warm-air registers in the floors of the classrooms should be removed and placed in the walls, if possible, about 8 feet above the floor. If this can not be done, a better heating plant of low-pressure steam, regulated by thermostats, should be in- stalled with direct radiation in the rooms. The fan should then be removed and de- pendence placed upon windows for ventilation. When the inspection was made, the ventilation was faulty and the rooms were too hot. This is a good building. With proper care, and the changes suggested, it can be used for many years safely and ^\^th satisfaction. UXTOX SCHOOL. This building is most unfortunately placed so near the steam railway tracks as to cause a great loss of time from noise and suffering from the gas-ladened smoke of passing trains. There are many good features in this building despite bad fenestra- tion . Nothing can be done to get rid of the noise, whicli will in all probability- increase instead of decrease. It would be difficult and expensive to rearrange the windows, and so only the following recommendations are offered : 1. The thermostatic system is out of order, and should be corrected at once, for not only is the health of the teachers and children involved, but also the economic use of fuel. 2. There is a good deal of debris and furniture, some of it not belonging to the school, stored in the basement. All of this not needed should be removed and stored else- where. 3. The toilet seats should be kept in a more sanitary condition, and all flushing apparatus should be thoroughly cleaned and kept in better repair. Some of this apparatus was not working at all. As soon as possible, indi\ddual and direct flush toilet seats and enameled urinals should be installed. The former should all be set to face the windows, while the latter should be set directly beneath the window. This will insure better ventilation, a lighter room, and a great 8a^ing in water and electricit>'. HOME ECONOinCS BUILDING. The basement of this building is rather poorly ventilated, and is likely to be damp in summer. The furnaces are rather dangerously close to the joists above, and , though gravel lias been placed on their tops, great care should be given these in severe weather, when heavy firing may become necessary, to prevent overheating and consequent danger. HIGH SCHOOL. The high-school building was miserably planned, and beyond that little can be said that will be of any help to the board. In the first place, the lot was totally inade- quate and greatly handicapped the architect. In the second place, there is evidence everywhere that the plans were not submitted to those who know tlie needs of a mod- ern high school, and that no one studied them carefully from the point of view of securing a serviceable and hygienic school building. The lighting is faulty, many of the rooms are badly proportioned, the basement is cut up into dark cubby-holes and passageways, and e.xterior decoration seems to have been preferre<^l to adequate lighting. SCHOOL BUILDINGS AND GROUNDS. 37 It is a painfully disappointing building. Notliing can be done in an economical way to remedy its defects or make it more useful and acceptable, and the youth who flock to it for many years to come will suffer because no one who knew what they needed was called to supervise its planning. The only changes now practicable are a few readjustments of desks and classes so as to conserve the \dsion of the teachers and children, and a general cleaning up of the basement. LIBRARY. In \'iew of the fact that no memljer of the survey commission has made a special study of the reqiiirements of a library building, this report discusses only such general questions as those of heating, lighting, etc. In the reading rooms the windows were set so near to the floor that it is impossible to set bookcases xmder them, and hence a mistake was made both from the point of view of the loss of book space and better illumination. The bottoms of windows for reading rooms should always be well above the level of the eyes of the reader when seated. This is particularly true on the second floor. There the small windows drop almost to the floor line, while the tops are many feet below the ceiling above. It must certainly be tme that the upper rooms of this l^uilding are very warm in summer, and that adequate ventilation is peculiarly difficult. It seems e\ident that the plans of this building were not thoroughly studied from the point of view of use, and that miich help might have come from calling upon prac- tical librarians for suggestions. LtNCOLN SCHOOL. The basement of this building needs cleaning and repairing, especially the cold-air chamber and the door leading to it. The girls' toilet needs better ventilation and lighting. The grounds in the rear should be drained and gi-aveled. The electric lights in the domestic science room should be fitted with proper shades to reduce the glare of imcovered bulbs; and the forge better protected to prevent smoke and gas from escaping into the rooms above. The recent additions made to this building were badly placed, because of the cutting off of light from other rooms. No further direct additions to this building should be made. If more room is needed, another building should be constructed on another lot, for the heating plant is now insufficient in severe weather for safety, and further additions would interfere with the lighting, already very bad. V. THE BUILDING PROGRAM. WHY WHEELING NEEDS A SCHOOL BUILDING PROGRAM. The following paragraphs outline the main features of a school Iniilding program looking forward over a number of years. Action on these proposals should await decision on the more fundamental need of the Wheeling schools, namely, that of reorganization of the scheme of administration. Nevertheless, one of the serious weaknesses in the school situation has been the lack of a comprehensive and forward-looking building program, guided by expert knowledge of the requirements of a modern school system. Even with a reorganized school board, therefore, the school buildings and equipment vdW need to be modi- fied in order to make possible all of the improvements suggested in this report. Modifications in the school building situation must necessarily be fliade gradually and only after careful study of possible future contingencies. 38 EDUCATIONAL SURVEY OF WHEELING, W. VA. SCHOOL BUILDINGS DO NOT MEASURE UP TO MODERN REQUIREMENTS. WTieeling's school plant is not modern. With the exception of Madison and Union, there has been no new elementary school for 24 years. Five of the 9 elementary schools were built 34 or more years ago. One was built 49 and another 50 years ago. The buildings are old and archaic in construction; in a number of them the sanita- tion is bad; and in others the lighting is so inadequate that in some States the chil- dren would bo forl)idden by law to enter them. With few exceptions, the' buildings are iitterly lacking in modem educational facilities, such as auditoriums, gymnasiums, shops and laboratories, drawing and music rooms, libraries, and playgrounds. IMPORTANCE OF WORK AND PLAY AS WELL AS STUDY IN SCHOOLS. What Wheeling needs primarily is to realize that opportunities for work and play in school are educationally as important as pro\'ision for study. There has e^'idently been an attempt to provide some modern school acti\'ities in some schools, but they are very inadequate. One reason is becaiise the pu1)lic in general does not fully realize that children have always been educated through work and play as well as study, and that they can not be deprived of any of these three things if they are to receive a full, rich education. Fifty years ago, children had opportunities for this healthy work and play outside of school so that it was not necessary for the school to pro\dde anything but classrooms. But during the past 50 years has come the growth of the modern city, with its factories and mills, and ofhce buildings and tenements which go up on all vacant city lots and which have deprived children of the opportunities for the wholesome work and play which are essential elements in their education. The city home or apartment, unlike the farm, with its many opportunities of "learning by doing'' can offer few educational opportunities in the way of healthful work which develops the ability to think by attacking problems to be solved. There is no planting and harvesting to be done; few, if any, animals are to be taken care of; and it is a rare city home that has a work- shop or laboratory. Yet children, until recently, have receis'ed much of their educa- tion through the opportunity to handle tools, to take care of ajiimals, and to experi- ment in making and using things. SCHOOLS MUST RECOGNIZE CHANGING COMMUNITY CONDITIONS. But the city not only fails to educate children in the right direction; it educates them in the wrong direction, for the street, with its dangers to the physical and moral life of children, too often becomes their only playground; and street play means education, not in health and strength and wholesome li^'ing, but precocious education in all the vicious side of a city's life. For these reasons it has come to be recognized that the city school must nbt only provide classrooms, but it must also return to the children the opportunity for the healthful work and play which the home can no longer supply. This meajis that school ])uildijig8 must contain not only classrooms, but auditoriums, gymnasiums, laboratories, drawing and music rooms, shops, libraries, and playgrounds where these actiA'ities may be carried on. The main problem in the building program is to recognize existing buildings and plan new buildings so that the clvildren in each building may have not only classrooms, but modern educational facilities. How is such a program to be carried out within the financial alnlity of the city? There are two methods of meeting the situation. One is by the traditional method of school organization in which all children are expected to be in school seats at the same time, and if provision is made for special actiWties, such as shops or cooking rooms, the classrooms remain vacant when such facilities are in use. THE BUILDING PROGRAM. 39 THE WORK-STUDY-PLAY OR PLATOON SCHOOL. The other method is commonly known as the work-study-play or platoon plan now in operation in many cities in this country, notably in Pittsburgh, Pa., where the plan has been in operation for six years.- This plan makes modern educational facilities financially possible for all children by using all parts of the school all the time instead of letting classrooms lie«idle while shops and laboratories are in use. That is, it applies the principle of the balanced load, or multiple use of facilities. Under this plan, a school is di^^ded into two parts, each containing all grades, and while half the school is in classrooms, the other half is using special facilities. At the end of one or two periods, the group of children who haA'e been in classrooms go to special facilities, and the other group goes to the classroom. This means that only half the usual number of classrooms is needed, i. e., 12 classrooms in a 24-class school. A classroom costs at the present time $16,000 in most parts of the country. Therefore, by using 12 instead of 24 classrooms §192,000 is saved and released for special activities. Under the work- study-play plan, every child gets the same amount of time for the three R's, but he also has 40 minutes for play a day, 40 minutes of auditorium, and 40 minutes of shop or science or drawing. Furthermore, because of the flexibility of the program, the school can be adapted to the needs of the child, instead of vice versa. RECOMMENDATIONS FOR A SCHOOL BUILDING PROGRAM. By abandoning 6 old buildings, putting up 3 new buildings, and putting in modern equipment in 3 existing buildings, it is possilile for ^Mieeling to have a school plant inj,vhich every school shall ha^*e adequate classrooms and also an auditorium, gymna- siimi, shops, cooking and sewing rooms, science laboratories, drawing and music rooms, a Library, and kindergarten. And it is possible to do this idthin the financial limits of the cit>j. The schools which should be abandoned ultimately are the Ritchie, ^IcKinley, Clay, Jefferson, Center, and Lincoln. This will eliminate the costs of upkeep and out- lays for these buildings, which in the year 1920 amounted to $32,842.77. WTieeling has too many small buildings. The larger the buildings, within limits, the richer the facilities that can be given to children: the older and smaller the building, the more expensive it becomes. For example, the per capita cost of the Ritchie School with an enrollment of 510 pupils is $59.10. whereas the per capita cost of Madison with 906 pupils is only $45.35. A summary of recommendations for each school district follows. RITCHIE DISTRICT. Ritchie and McKinley Schools should both be abandoned, as they are old. insani- tarj^ buildings and archaic in construction. Erect in this district a new school build- ing for a 24-class school which would house the children in both Ritchie and McKinley. Under the work-study-play plan, it would need 12 classrooms, 2 shops for boys, a domestic science and sewing room for girls, 1 drawing room, 1 music room, 1 mechanical drawing room, 1 library, 1 chemistry laboratory, and 1 physics laboratory'. The total cost would be $462,000, Under the traditional plan of school organization, it would be $659,000. This school should be a combination elementan,- and junior high school . The high school is so far away and expensive to reach that the children are not likely to go to it from this district, imless their interest is aroused through this preliminary work. The way to increase the enrollment in the high school is by developing modern elementary schools. 2 See Economic Values of the Platoon Type of School Organization, prepared by William F. Kennedy, ^v-lth the McKeloy School of Pittsburgh, as a t}-pe illustration. 40 EDUCATIONAL SURVEY OF WHEELING, W. VA. CLAY DISTRICT. Clay and Jefferson Schools should be abandoned, as Clay is an old, insanitary building, and Jefferson is too small to maintain economically. Erect a new building for the (lay and Jefferson and the seventli and eighth grade pupils from the Union School, leaving Union as a (i-grade school. This school would also be a 24-class school. The cost would be the same as for the Ritchie School. WEBSTER DISTRICT. Center School should be abandoned and the pupils in Center and Webster housed in the Webster School. If this building is organized on the work-study-play plan, there would be ample room for the children of both schools. There would be 988 children, or a 24-class school. There are 18 classrooms in the building, a manual- training room, and a cooking room. Twelve of the classrooms could be used as class- rooms, one for an auditorium (it Avas originally built for this purpose), one for a kinder- garten, and the other six for special activity rooms. There is a playground a block and a half away, and a portable gymnasium could be erected there. The cost for equipment for the special acti^^ties and for the gymnasium would come to $10,000. Under the traditional plan, 12 additional classrooms would be needed at a cost of $192,000. WASHINGTON DISTRICT. Washington is a wlay plan only 15 classrooms would be needed. The other 13 rooms could be used as follows — 1 chemi.str\- laboratory-, 1 physics laboratory, 1 freeliand drawing room, 1 mechanical drawing room, 1 music room, 1 sewing room, 1 cooking room, 2 sliops for boys, 1 nature study rfX)m, 1 library, and 1 kindergarten. Two rooms could be used for g>-mnasium for girls. A gA-mnasium for boys could be constructed between the left wing and the auditorium at a cost of approximately $25,000. The cost of equipment for the special rooms would be $7, .500. The total cost, $32,500. Under the traditional plan, 15 extra classrooms would be needed. They would cost $240,000 and tliere is no space in which to put them up. THE BUILDING PROGRAM. 41 LINCOLN SCHOOL. This is an old, inadequate building, placed inconveniently on a hill, wliich, if the Wheeling Improvement Association plans materialize, will be used for a national liighway connecting with Greater Wheeling. The building should be abandoned and a new building erected at the foot of the hill near the Negro church. As this is a com- bination elementary and high school, the building would have to be constructed to accommodate 8 elementary classes and 2 high-school classes. Under the work-study- play plan, 4 classrooms would be required for the elementary school and 2 for the high school. There should also be a chemistry laboratory, a pliysics laboratory, a shop for boys, 2 shops for girls, a drawing room, a music room, a library, kindergarten, audito- rium, and gymnasium. All these activities are carried on in the school at the present time, but with very inadequate equipment. A new building of 16 units, at a cost of $16,000 per unit, would be $256,000. Under the traditional plan, 6 additional class- rooms would be needed and the cost would be $352,000. Summary of costs of building program.. School. Cost under work- study-play plan. Cost under traditional plan. Ritchie district, new building. $462, 000 462,000 10,000 13,500 32,500 $659,000 659,000 192,000 128,000 240 000 Clay district, new building "Washington district Madison district... Total white elementary schools. . . 979,500 256,000 1 878 000 Lincoln School '352*000 Total 1,235,500 2,230,000 THE HIGH SCHOOL. According to the above plan, there will be three combination elementary and junior high schools in the city, one at Ritchie, one at Madison, and one at Washington. This will take the ninth grade from these districts out of the high school, thereby leaving plenty of room for the growth in the high school. Such an arrangement will also doubtless result in arousing among the children in these districts greater interest in going to high school because the junior high school work will stimulate their interest in the things that the high school has to offer. CAN WHEELING AFFORD THE PROPOSED BUILDING PROGRAM? Wheeling can afford the proposed building program. ^Tieeling's taxable wealth is given at $65,000,000, although it is estimated that on a 100 per cent valuation the taxable wealth of the city would be over $93,000,000. (See report on school finance.) Compared with other cities of the same population, but with even less taxable wealth, the amount of Wheeling's school property ($1,071,454.13) is below the average. Among 45 cities of the same class it ranks thirty-fourth in the amount of school property. Bayonne, N. J., is also an industrial city of 55,000 population, and its taxable wealth at 100 per cent valuation is $68,485,000. The amount of its school property is $2,524,- 000. In other words, up to the present time, Wheeling has not spent on her public- school plant the amount of money which her wealth justifies. 42 EDUCATIONAL SURVEY OF WHEELING, W. VA. BONDING THE CITY. The independent school district of WTieeling is able to bond the city for schools up to $3,270,200. It has outstanding bonds for only $120,000. In other words, the district has a leeway of over $3,000,000 before reaching the limit of bonded indebtedness for schools. There is no reason from a financial standpoint why Wheeling should not carry out a building program which would give all the children of the city the most modem educational advantages. AMieeling can not afford not to give these modern educational advantages to her children. It is said that America is the land of equal opportunity in education, but this does not mean opportunity for uniform education, but opportunity for the devel- opment of the varied gifts of many indi^'iduals. Democratic education means variety of opportunity in accordance with the needs of the individual. If 'WTieeling does not give this variety of op])ortunity in work and study and play to the children of all its people, then it is failing to tap the reservoirs of power for its coming citizenship. Moreover, it is la\-ing up trouble for itself in the future, for nothing is more serious to any community than to have the great mass of people feel balked in their power of self-expression and attainment. VI. THE HIGH SCHOOLS. SELECTION OF SUBJECTS AND ORGANIZATION OF CURRICULA. (1) Needs of various groups of pupils should be more definitely served through reorganization of the five curricula now offered. (2) A scientific curriculum and a fine arts curriculum should probably be added. (3) Requirements as to subjects should be somewhat as follows (many of these are already in effect) : (r/'i English, two units, first and second year same for all pupils; third and fourth years differentiated to meet needs of (I) pupils in classical and fine arts curricula,(2) pupils in commercial and industrial arts curricula: pupils in other curricula will choose between these two types. (h) Present requinmient of 2V units of mathematics should be limited to classical and scientific curricula; one unit of business arithmetic in commercial curriculum; one unit of business arithmetic or composite mathematics in the general, industrial, and household arts curricula. (c) Three units of social studies in the general curriculum, one in commercial, and two in all others. American history and civics, one-half unit each, required of all pupils. (d) Science, three units in scientific curriculum; one unit in all others. (e) Four units of foreign language in classical curriculum; two units in fine arts and scientific curricula. (f) Four units of household arts or industrial arts in household arts and industrial arts curricula, respectively; one unit of either in general curricidum. (h) Four units in art or music in fine arts curriculum. (t) Physical training, one-fourth luiit each year required of all pupils. (j) Include in each curriculum only the elective subjects appropriate to it. (4) Part-time classes for employed boys and girls should be developed; also a two-year vocational curriculum preparing for wage earning. THE HIGH SCHOOLS, 43 CLASSROOM WORK AND EXTRA-CURRICULAR ACTIVITIES. (1) Attitude of teachers especially commendable; interest and enthusiasm e^'ident in work observed. (2) Effectiveness of instruction may be increased through study and experimen- tation along the following lines: (rt) Better assignment of lessons and direction of study. (b) 'Move sixpplementary materials and wider application of class work to life situations. (c) More responsibility should be placed on pupils. {d) In daily work and semester examinations, more emphasis should be placed on questions invoh-ing comparison, judgment, interpretation, reasoning. (3) The extra-curricaiar actiWties (such as literary and debating societies, musical organizations, athletic sports') should be broadened in scope and more definitely utilized for their educational possibilities. ADMINISTRATION AND SUPERVISION. (1) A director of each curriculum should be appointed to assist the principal in various ways. (2) Each group of closely related subjects should be organized into a.department, and the teachers organized under a chairman for study of materials, methods, and special problems. (3) A specially trained and experienced adviser or dean of girls should be appointed; the principal can act in this capacity for boys. (4) Present methods of classif\dng pupils should be supplemented by the use of intelligence and other educational tests and measiu-ements. (5) Present system of marking on basis of 100 per cent should be changed to system of 4 or 5 letters; or marks may be given only in multiples of 5. (6) A cafeteria under the supervnsion of the household arts department is needed. (7) The present noon intermission should be abolished, and time for lunch limited to two periods, one-half of the school being scheduled for each period. (8) A skilled teacher, who is also trained in library methods, should be assigned to each high school as librarian, responsible to the principal, to maintain and con- duct a branch library. (9) The industrial arts department should be more adequately housed. (10) The commercial department should be fiu-nished additional equipment. (11) A well-trained record clerk should give full time to maintaining more com- plete system of records. (12) Definite steps shoiild be taken to increase the high-school attendance. IN GENERAL. (1) A system of junior high schools, comprising grades 7, 8, and 9, should be estab- lished. (2) A building progi'am, looking toward buildings better adapted to the needs of secondary education, should be planned for a period of years. (3) A special study should be made of the needs of colored pupils, with a view to placing greater emphasis on vocational subjects. (4) The teaching schedules in a few cases are too heavy. 44 EDUCATIONAL SURVEY OF WHEELING, \V. VA. VII. THE ELEMENTARY SCHOOLS. INTRODUCTORY. Every teacher in the elementary schools was visited at least once, usually for a full lesson period ; many teachers were \isited more than once, and by more than one member of the staff. In preparation for these personal observations educational tests in handwriting, reading, arithmetic, spelling, and vocabular\-, were given throughout the school system, so that definite, objective e\-idence was available to supplement the judgments of classroom teaching. In addition to these tests and observations, written lessons, notebooks, examination papers, and other written e\-i- dence of school work were collected and carefully studied. The report is ver\' adverse. A few teachers are doing excellent work, but on the whole the community is not receiving fair returns for money expended on the ele- mentary- schools. REORGANIZATION ON JUNIOR-fflGH-SCHOOL BASIS. The school system should be reorganized so as to provide public kindergartens: elementarj' schools of six yeare; at least three junior high schools, comprising grades 7, 8, and 9; and a senior high school of three years. A modified form of departmental instruction should be adopted for grades 4, 5, and G. A MODERN COURSE OF STUDY NEEDED. Responsibility for the present course of study, which is wholly unsatisfactor>-, rests directly on the administration, not on the teachers. No attempt has been made to draft a course of study adapted to conditions and needs in Wheeling, or reflecting current ideals in education. Many of the topics now required in arithmetic, grammar, and other subjects should be eliminated. There is no discoverable relationship between the various subjects of instruction, and in general the course is many years behind the best current practice. Ci\-ics, elementarj' science, and illustrative handwork are conspicuous by their absence. The course of study is uniform throughout the city, and no allowances are made for differing degrees of ability among children. The course of study should be entirely reorganized, and based upon the principle of meeting the needs and abilities of children at successive stages of development. The very formal type of work in hand wtI ting, arithmetic, etc., in the first two grades should be eliminated, and for it should be substituted free play, oral language, nature study, modes of expression in the manual arts, and other activities based on the children's experiences. A specialist should be employed to work with the principals and teachers in the construction of a modem curriculum for the Wheeling schools. Too much attention is now given to formal spelling, grammar, and arithmetic; while too little or no attention i.s given to geography, history, lit?rature, oral language, illu.strativo handwork, drawing and music for appreciation, elementarj' science, supple- mentary reading, civics, physical training, and play. TEACHERS GENERALLY UNPREPARED FOR SERVICE. Only 24 of the 174 teachers in the elementary schools meet reasonable standards of qualifications. Only 12 have had as much as one year of normal-school training after completing the high-school course. About three-fourths of the teachers have had practically nothing more than high-school education, or le.^^s. The average term of service in Wheeling is 14.3 years, while the total average ex- perience ia 16.1 years, which is very much above the average. This degree of per- THE ELEMENTARY SCHOOLS. 45 manency of tenure would be a commendable feature if the teachers were adequat<}ly trained ; as it is, the children of Wheeling do not have the advantage of teachers who have had good education and adequate professional training for their work. HIGHER STANDARDS OF TEACHING ESSENTIAL. The teachers in the Wheeling elementary schools need training first, and then inspired, intelligent guidance from principals and superAisors. No new teacher should be employed in the elementary schools who has not had a minimum of two years of professional training beyond graduation from a standard four-year high-school course. Teachers now in the system should be given a rea- sonable period, say, five years, in which to meet the new standards. To assist them, study classes for teachers should be organized, including possibly extension course from near-by educational institutions. Teachers should be required to continue professional growth and development, but endeavor along such Unes should be recognized. They should be permitted to \-isit other schools at least one week each year. Equal salaries for equal abiUty, training, and experience should be paid throughout the system. The teaching staff sliould not be recruited entirely from "^lieeling. LACK OF SUPERVISION. There is much confusion of authority in the present plan of super \ision; in general, no one seems to know just how much authority he has or whence it comes. The superintendent attempts to Aisit each teacher five times each year, but Aisits possible on this plan must ])e short and perfunctory. Principals are expected to Aisit 30 minutes each week in each teacher's room; but this is not regularly done, and such \isits as are made are rarely followed by conferences. The time of principals is too largely taken up with routine office work, and they are handicapped by lack of clearly defined authority in their own buildings. Practically all of the principals are able school men and women, capable of wise exercise of super\-isory authority. The special superA-isors in physical training and drawing are in reaUty special teachers, and in some instances are able to secm-e very little cooperation from the classroom teachers. LINES OF AUTHORITY SHOULD BE CLEARLY DEFINED. The present chaotic condition of the superAisory scheme in WTieeling calls for complete reorganization. The superintendent should deal Avith the classroom teachers through the principals and supervisors. The principal should be held responsible for the work of his school, and should be giA-en full authority, under the superintendent, in the administration and superAision of liis school. A special superAisor should be appointed for the primary grades. The superAisors of special subjects, as music, draAving, etc., should probably give more time to direct- ing and assisting the actiAities of teachers, teaching themseh-es only for demonstra- tion and when the regular teachers are not prepared. The relations between special superAisors and school principals must be carefully defined. Better cooperation is needed. A bureau of tests and measurements should be established as an aid to the super- Aisory and teaching force. STATUS OF THE SCHOOL PRINCIPAL. The chief function of the principal should be superA-ision of instruction, and he should be professionally trained for this important work. The principal should be assigned the duty of conducting teachers' meetings for the discussion of school prob- 46 EDUCATIONAL SURVEY OF WHEELING, W. VA. lems; he should have authority to assign school duties to his teacliing staff within prescribed limits; he should nominate teachers for confirmation by the superintendent. GENERAL MANAGEMENT OF SCHOOLS FAULTY. The classification of pupils in the schools is faulty, as eWdenced by the "wide ranuie in scores in the various tests, and by the presence of unduly lai^e proportions of pupils who are too old for their grades. The system of promotions is unsatisfactory, in that a grade below GO in a single subject sometimes forces a pupil to repeat the work of an entire semester. The plan of having coach teachers is to be commended, but as applied in WTieeling it is inef- fective and unsuccessful. A biireau of tests and measurements should be organized to secure the data upon which to base a modern scheme of clas.sification, grading, and promotions, to the end that children of nearly equal ability and attainments may be placed together. De- fective and subnormal children should receive special attention. The coach teachers should be specialists, trained in methods of dealing with backward children. Vni. PHYSICAL EDUCATION, HEALTH SUPERVISION, HEALTH TEACHING. Pulilic schools should educate for health, vigor, and sanity. The physical edvK a- tion, medical inspection (health supervision is a better term), and health teaching already e.^tabli.^hed in the WTieeling schools are substantial elements of a program for promoting these olijectives. The development of this program is hindered by inertia in the school system and in the public, by unsatisfactory school plants and, perhaps most important, by lack of coherent and effective adiniiustrative organization of the schools as a whole. HEALTH EDUCATION SHOULD COORDINATE MANY ACTIVITIES. 1. Develop the beginnings that have been made in physical education, health super- \d.-;ion, and health teaching into a consistent, complete, and coordinated program. Ultimately it may be desiral)le to combine these activities into a single administrati\e unit. For the present the physical education and the health supervision should be developed separately, l>ut in logical and helpful coordination. Health teaching, of necessity, is a divided responsibility and must be developed in connection ^\-ith physi- cal education, health superW-^ion, and, in the higher grades and in the high school, with such subjects as home economics, l)if)logy, and ci\'ics. 2. Develop the program of physical education along the lines already laid down, including coordination \vith community recreation. Make the director of physical education responsilde to the superintendent of schools not only for the conduct of his department but al.':o for the selection of his assistants. Appointments should be made only upon his initial recommendation, approved by the superintendent. Develop plans already initiated for preparing teachers in service to take adequate part in the physical education program. See that "classroom physical training" conforms to hygienic principles; such as, conducted only in well-ventilated rooms; exercises chiefiy recreative; needs of indiWdual pupils recognized. r5. Provide a clean, well-lighted and well-ventilated exercise room and a minimum of 30 square feet per child of actual jtlayground space for each school. ProAdde, fur- ther, a sufficient number of well-located district playgrounds, large enough to insure for the children and young people of each district such vigorous outdoor games as PHYSICAL EDUCATION AND HEALTH TEACHING. 47 soccer, baseball, and field and track sports. The new public-school athletif field provides for city-wide competitions and exhibitions, but is not a substitute for local district playgrounds. 4. Pro\dde for one full-time director of the department of medical inspection di- rectly responsible to the superintendent for the administration of this department. His duties should include the communicable disease work of the schools, health exam- ination of pupils, supervision of the nursing service, sanitary supervision of school plants, supervision of special classes for subnormal and handicapped children, promo- tion of hygienic school management, and, in general, supervision of all school conditions affecting the health and grovnh of pupils. The amount, v^ariety, and thoroughness of work involved will require the full time of a competent man. Expand and improve the health examination procedure, provide complete exami- nation for all children entering school, all malnourished children, those suspected of tuberculosis or organic troubles, those engaging in competitive athletics. The examination should include the mental status of pupO and the nervous and emotional factors that condition health. ADEQUATE RECORDS ESSENTIAL TO EFFICIENT WORK. Improve the recording and the reporting. Make the records more effective as aids to follow-up work with individual children and as means of analyzing and evalu- ating the work performed. The periodic statistical reports as now made are of little value except for filing. Provide for an annual, analytical report showing scope of activities, achievements, obstacles in the way of achiev^ement, and presenting recom- mendations for improvements. There should be periodic reports covering urgent matters. The school nurses are doing very valuable work. Their energies might be conserved, and even more effective work would be done, if the objectives of the nursing service were better defined, and if there were more systematic guidance and supervision of the nurses. The mutual responsibility of nurses, principals, and teachers should be more clearly defined. It is desirable ultimately that there should be a nurse in everj' school. The director of medical inspection, under definite regulations, should be responsible for the hygiene of school buildings. The respective duties and responsibilities of the medical inspector, nurses, principal, teachers, and janitors should be defined. The director should be required to report promptly and accurately upon urgent matters, and the board should lay upon itself the duty of acting promptly upon his recommendations. SUBNORMAL AND HANDICAPPED CHILDREN A SPECIAL PROBLEM. At present there is no provision for the special education of subnormal and handi- capped children, such as anemic and tubercular children, the speech defectives, the cripples, the deaf, the semiblind, and the mental subnormals. A careful survey should be made under the direction of the medical inspector to determine the number of children requiring special education. The nutrition classes should be increased to include malnourished children. 5. The experimental work of the niirses in health teaching should be encouraged and developed. The nutrition classes, both formal and informal, the health talks given by the nurses in connection with their periodic inspections, the inclusion of the weight record in the pupil's monthly report and other methods are stimulating interest in health and the practice of health habits by pupils. An effective program of health teaching may be developed through the leadership of the nurses. It must be recog- nized, however, that health teaching is not an exclusive function of the nurses. On the contrary, it is an essential part of the work of every teacher. Time should be pro- vided in the schedule, and all teachers should be prepared for this work. 48 EDUCATIONAL SURVEY OF WHEELING, W. VA. SPECIAL PROBLEMS OF THE HIGH SCHOOL. 6. The administrative responsibility of the principal of the high school should be clearly defined. There should be clear and specific regulations governing his respon- sibility to the superintendent, and his relationship ^vith the director of physical einning of papers and pictiu"es to any available woodwork. (c) Supply each classroom with a few pictures appropriate to the grade and age of the pupils, and eliminate such pictures as are too small to be ea.«dly seen by the majority of the class. The principal of the building, the superA-isor of art, and the grade teachers should work in harmony to secure the best for the building, and work out a scheme for decorating the corridors with the classroom work of exceptional pupils. {(T) Supply aisle boards for the display of groups of objects for di-awing. («) Children in the grades should be supplied from the school funds mth water-color boxes and brush a«. (2) Place in each building a small library of l>ooks on art and on art education. ART EDUCATION AND THE COMMUNITY. (1) Secure exhibitions of original examples of fine and industrial arts work and arrange for classes to make special trips to the exhibitions under the guidance of the gi-ade teachers. (2) Pictures of examples of architectiu"e, sculpture, and paintings now in WTieelijig should be made available for study. (3) C/Ooperation of the teachers in the grades of bench work, pottery, domestic science, principals of the schools, and the lil)rarian should be sought to perfect a more solid school organization. EDUCATIONAL SURVEY OF WHEELING, W. VA. 53 Xn. TANGIBLE RESULTS OF THE SURVEY. At least two definite actions of the board of education, growing out of consideration of the recommendations of the survey report, may be recorded : REORGANIZATION OF THE BOARD OF EDUCATION. At a meeting of the board held March 29, 1921, a series of resolutions proj>osiug amendments to the legislation under which the WTieeling public schoob are now operating were adopted, in accordance with which the number of members would be reduced from 21 to 5, effective in June, 1923, the earliest possible legislative date at which the changes can be made. On March 30, 1921, the president of the board of education wrote to the Bureau of Education, as follows: After a series of meetings and conferences the board finally passed the amendments to the bill prepared by the Rotary (lul), Kiwanis Club, and chamber of commerce, which provide for the election of iive commissioners at large at the city election of 1923, the term to be six years. At the first election two will be elected for six years, two for four years, and one for two years, and the election is to be nonpartisaji and candidates an-anged in alphabetical order. The other p^o^ision is that the superin- tendent shall appoint all principals, teachers, and other employees of the board, subject to confirmation by the board. At a meeting of the joint committee of the above organizations held yesterday these changes were approved unanimously by the members present, so that the bill as now amended goes to the legislature without contention. QUALIFICATIONS OF TEACHERS. On Friday evening. July 22, 1921. the board of education adopted the following resolutions: In order to carry into effect the recommendation of the survey commission with respect to raising the standards of qualifications of the teaching staff, the board of education of the school district of Wheeling hereby adopt? the following resolutions: Resolved, (1) That hereafter all principals, superA-isors, directors, teachers, libra- rians, niu'ses, clerks, janitors, and other employees (except the clerk of the board) shall be employed, promoted, demoted, transferred, retired, or dismissed, exclusively upon the written recommendation of the superintendent of schools, subject to the approval of the board. (2) That after July 1, 1921, no new teacher or supervisor shall be employed for service in the high schools who is not a graduate of an accredited four-year college or university coiu'se, except that teachers or supervisors in special technical subjects may offer successful experience in tlie vocations related to such subjects in lieu of two years of such college or university course, provided two years of approved professional training beyond high-school graduation be* offered. (3) That "after July 1 , 1921, no new teacher or super\dsor shall be employed for ser-vice in the elementary schools who is not a graduate of an approved normal school or teachers' college course consisting of two years' work beyond graduation from a standard high school, or, in the case of special trade subjects, who has not had the equivalent of two years of professional preparation for teaching or supervising the subject in question. (4) That after July 1, 1921, to be eligible for a new appointment as principal of a school a candidate shoTild meet the minimum requirements herein set forth, and in addition should have had not less than five years' successful experience in teaching, and have completed an approved course of professional preparation in school adminis- tration and supervision. (5) That in the cases of all principals, teachers, and supervisors who were employed in the Wheeling public schools during the year ended June, 1921, and reappointed for the ensuing year, the application of the minimum requirements as herein set forth be waived until September 1, 1927; and that the superintendent be directed to report on the professional qualifications of all principals, teachers, and supervisors at the regular meeting of the board in September of each year. (6) That after July 1, 1925, no person shall be employed for substitute sei-vice who does not meet with the minimum qualifications of regular teachers as set forth in this resolution. DEPARTMENT OF THE INTERIOR BUREAU OF EDUCATION BULLETIN, 1921, No/^^i"^ l , ^ r a R Y W' MONTHLY REC OF CURRENT EDUCATIONAL PUBLICATIONS SEPTEMBER, 1921 WASHINGTON GOVERNME^IT PRINTING OFFICE 1921